HomeMy WebLinkAboutPLN 02-22 Report to
Planning & Development Committee
Report Number: PLN 02-22
Date: January 10, 2022
From: Kyle Bentley
Director, City Development & CBO
Subject: Pickering Housing Strategy Study
Recommended Pickering Housing Strategy, Phase 3 Report
- File: D-1300-014
Recommendation:
1. That Council approve the Phase 3: Recommended Housing Strategy & Action Plan,
December 22, 2021, as the Pickering Housing Strategy & Action Plan 2021-2031,
December 22, 2021; and
2. That the appropriate officials of the City of Pickering be authorized to take the necessary
actions as indicated in the Pickering Housing Strategy & Action Plan 2021-2031,
December 22, 2021.
Executive Summary: This report provides an overview of the Housing Strategy Study,
presents the Phase 3: Recommended Housing Strategy & Action Plan Report prepared by
staff, and seeks Council’s authorization to proceed with the implementation of the Study’s
Recommended Action Plan.
The Phase 3: Recommended Housing Strategy & Action Plan, dated December 22, 2021 (the
Phase 3 Report) is on the City of Pickering website at https://www.pickering.ca/en/city-
hall/housing-strategy-study.aspx. A full copy of the Phase 3 Report is provided as Attachment #1.
The purpose of the Housing Strategy Study is, among other things, to establish the City’s role
and priorities with facilitating opportunities for developing housing, affordable housing, and
age-friendly housing in Pickering over the next 10 years, and to provide a mechanism to
monitor progress as the City works to implement its plan.
The Phase 3 Report completes Phase 3 of the Study. It is based on the work and feedback
received in all 3 phases of the Study, and identifies a Recommended Action Plan in Section 5.0,
for Council’s consideration.
Financial Implications: The recommendations of this report do not present any financial
implications to the City of Pickering.
Report PLN 02-22 January 10, 2022
Subject: Recommended Pickering Housing Strategy, Phase 3 Report Page 2
Discussion:
1. Purpose
The purpose of this report is to present the results of the Housing Strategy Study and
the Phase 3: Recommended Housing Strategy & Action Plan, December 22, 2021, to
the Planning & Development Committee.
2. Background
2.1 Study Initiation
On June 15, 2020, following the consideration of Report PLN 05-20, Council directed
City Development staff to undertake a comprehensive Housing Strategy Study. A link to
Report PLN 05-20 is available on the Housing Strategy Study page of the City’s website
(https://www.pickering.ca/en/city-hall/housing-strategy-study.aspx).
2.2 Study Purpose
The purpose of the Housing Strategy Study is to:
• establish the City’s role and priorities with facilitating opportunities for developing
housing, affordable housing, and age-friendly housing in Pickering over the next
10 years (2021-2031);
• assist Council with decision making;
• provide a framework for staff in implementing its responsibilities, including those that
relate to the coordination of actions with other agencies, organizations and
governments;
• assist in guiding residential growth within the City;
• aid in the education and creation of general public awareness of what the City is
doing on this issue; and
• provide a mechanism to monitor progress as the City works to implement its plan.
2.3 Study Process
The Housing Strategy Study consists of 3 phases:
• Phase 1: Research and Gap Analysis;
• Phase 2: Draft Housing Strategy and Action Plan; and
• Phase 3: Recommended Housing Strategy & Action Plan.
Report PLN 02-22 presents the Phase 3 deliverable: The Recommended Housing
Strategy & Action Plan, December 22, 2021.
Report PLN 02-22 January 10, 2022
Subject: Recommended Pickering Housing Strategy, Phase 3 Report Page 3
2.4 Study Overview
Since the launch of the Study, City staff:
• Hosted two electronic public open houses: one on January 21, 2021 and the other
on April 29, 2021.
• Met with stakeholders on February 25, 2021, including, government, not-for-profit, and
other agencies and associations, as well as the development and building industry.
• Met with the Pickering Accessibility Advisory Committee on March 17, 2021 and
May 19, 2021.
• Completed the Phase 1: Research and Gap Analysis Report, March 31, 2021 (the
Research Report), which is the consolidation of the research and analysis done to
determine the housing gaps within the City. In addition to collecting information and
data on the City’s demographic profile, socio-economic characteristics of households
and housing stock, and associated trends and forecasts, the Research Report
contains information pertaining to the policy and legislative context for the provision of
affordable housing. The Research Report was completed at the end of March 2021
and is available on the Housing Strategy Study page of the City website
(https://www.pickering.ca/en/city-
hall/resources/HSS/HSS_Phase1_ResearchGap_Analysis-ACC.pdf).
• Prepared the Draft Action Plan, which is a list of potential actions the City could
undertake to address the gaps in housing identified in the Research Report. The
Draft Action Plan was completed in April 2021 and is available on the City’s website
(https://www.pickering.ca/en/city-hall/resources/HSS/Att1---Draft-Action-Plan-
ACC.pdf).
• Presented the Draft Action Plan at the April 29, 2021 electronic public open house.
• Considered feedback to the Draft Action Plan.
• Prepared and circulated the Phase 2: Draft Housing Strategy & Action Plan (Phase 2
Report) for comment in November 2021. The Phase 2 Report is available on the
City’s website (https://www.pickering.ca/en/city-hall/resources/HSS/Draft-Housing-
Strategy-and-Action-Plan-ACC.pdf).
• Considered the feedback to the Phase 2 Report.
• Prepared the Phase 3: Recommended Housing Strategy & Action Plan,
December 22, 2021 (see Attachment #1), which is the subject of this report
(Report PLN 02-22).
• Met with Councillor Brenner and Councillor Butt (the Council appointed
representatives for the Study), at key milestones throughout the Study.
• Reported to Planning & Development Committee and Council on March 1, 2021 and
March 22, 2021 (PLN 11-21), and June 7, 2021 and June 28, 2021 (PLN 28-21),
respectively, providing updates on the status of the Housing Strategy Study.
Report PLN 02-22 January 10, 2022
Subject: Recommended Pickering Housing Strategy, Phase 3 Report Page 4
3. Phase 1: Research and Gap Analysis Report
The Research and Gap Analysis Report, March 31, 2021, concluded that the City’s
current housing stock is not fully addressing the needs of City residents. Key findings of
the Research Report indicated that there is an overall need for housing options for low
and moderate income earners, more affordable rental and ownership housing in a range
of unit sizes, and accessible units.
The primary rental market refers to units purposely built for the rental market. In
particular, the Research Report identified the need for additional primary rental market
units of all sizes, the protection of existing rental units, and the need for additional
accessible rental units. In addition, the Research Report identified the need for home
ownership housing options for moderate income earners in a range of unit sizes as well
as accessible units.
The Province of Ontario has completed several significant policy initiatives that have an
impact on facilitating the provision and/or protection of affordable housing. They include:
the adoption of the Promoting Affordable Housing Act, 2016; the adoption of the More
Homes More Choices Act, 2019; the 2019 update to A Place to Grow, Growth Plan for
the Greater Golden Horseshoe; the 2020 update to the Provincial Policy Statement; and
the adoption of the COVID-19 Economic Recovery Act, 2020. The City has an
opportunity to address these policy gaps through the Housing Strategy & Action Plan.
More recently, the Province has appointed a new Housing Affordability Task Force
which will provide the Ontario government with recommendations on additional
measures to address market housing supply and affordability. In addition, the Province
will host a provincial-municipal housing summit on January 19, 2022 for Ontario’s Big
City mayors and regional chairs. The summit will aim to identify further opportunities for
collaboration as the Province and municipalities continue to address the housing
affordability crisis.
4. Phase 2: Draft Housing Strategy & Action Plan
The Draft Housing Strategy & Action Plan (Phase 2 Report) was prepared following
receipt and consideration of comments provided on the Draft Action Plan presented and
discussed at the April 29, 2021 electronic public open house. The Phase 2 Report
explains the proposed actions the City could undertake to address the gaps in housing
identified in the Research Report, and provides information in support of the proposed
actions.
The Phase 2 Report was circulated to agencies, internal departments, interested parties
and stakeholders for review and comment in November 2021.
Report PLN 02-22 January 10, 2022
Subject: Recommended Pickering Housing Strategy, Phase 3 Report Page 5
4.1 Phase 2 Report Circulation Comments Received
4.1.1 Region of Durham
The Region of Durham has submitted comments in support of all of the recommended
actions contained in Section 4 and summarized in Section 5 of the Phase 2 Report. In
addition, the Region of Durham acknowledges and offers its support in the role it can
play in assisting the City of Pickering in connecting interested developers with experts
or consultants in the field of management and operation of affordable, rental housing
(recommended Action Items 3.2 and 3.4). Further, the Region of Durham offers its
assistance in developing key performance indicators and sharing housing data for the
purpose of reporting on housing measures in the City of Pickering (recommended
Action Item 3.7).
4.1.2 City of Pickering Finance Department
The City of Pickering Finance Department provided the following comments:
In the fall of this year, Council approved Report FIN 15-21 that included the “5 Year
Capital & Operating Plan” (5YCOP). The 5YCOP was developed by Watson &
Associates and was based on Council approved inputs consisting of: 2022 Preliminary
Draft Capital Budget & Four Year Forecast (FIN 13-21) and the City’s Asset Management
Plan (FIN 14-21). Excluding the City Centre project, the draft capital plan and forecast
for the five years has an estimated cost of $410.7 million. To fund this plan, the City is
relying on Development Charge (DC) funding as a critical source of funds and the DC
funding represents 43.58 percent of the revenue source.
The City Centre is a key Council initiative with a total estimated cost of $207.7 million
with DC funding providing approximately $110.5 million as a revenue source. If you add
the City Centre DC funding requirements with the Capital forecast, the City is relying on
DC funding to provide $289.5 million as a source of capital funding. At this current time
and as outlined above, it is recommended that the City not waive its fees and or
Development Charge fees on a short term basis, however, this decision should be
reviewed post 2026 (Action Item 2.2).
Letters of Credit (LC) should be viewed as financial insurance. The LC protects the City
and by default, the existing taxpayers from funding project costs that are the responsibility
of the “Developer.” It is recommended that the LC requirement not be waived (waiving
LCs has been removed from the Phase 3 Report).
The 5YCOP and the Council approved Asset Management Plan highlighted the need to
invest in the City’s existing infrastructure through additional special levies. At this
current time, the City does not have the financial flexibility to fund a Housing Reserve
Fund (Action Item 2.4). However, this decision should be revisited and the City could
consider a contribution and/or special levy as a medium term strategy post 2026.
There is an administration component associated with the implementation of a Vacant
Home Tax. Before proceeding with implementing this new “tax,” the administration
component has to be thoroughly investigated to determine if the benefits are greater
than the cost (Action Item 2.5).
Report PLN 02-22 January 10, 2022
Subject: Recommended Pickering Housing Strategy, Phase 3 Report Page 6
4.1.3 North-East Pickering Landowners Group
Malone Given Parsons Ltd. (MGP), planning and land economic consultant, submitted
comments on behalf of the North-East Pickering Landowners Group (NEPLOG)
expressing general support of the goals and objectives identified within the Phase 2
Report. The NEPLOG consists of a number of established and experienced community
and home builders who own multiple properties in North-East Pickering, and, through
the Region of Durham’s municipal comprehensive review (Envision Durham), has
formally requested that its lands be brought into the urban boundary to accommodate
residential and employment growth to 2051.
The NEPLOG commented that:
• There is an important difference between subsidized housing and affordable housing
that is available on the free market. The latter may contain a number of building and
unit types (stacked townhouses, back-to-back townhouses, etc.) that are considered
affordable but not commonly considered in government programming and
subsidizing, but which still contribute to providing a range of housing options for
various income levels.
• The development approvals process for new communities should be streamlined
and expedited to bring housing into the market sooner to address supply.
• Bringing the North-East Pickering lands into the urban boundary will allow for the
City to increase its residential land supply, which will contribute to increasing the
overall housing stock within the City over the planning horizon.
• The NEPLOG is supportive of collaboration and partnerships, between the
development sector and the City, throughout the process of developing each of the
draft actions.
4.2 Previous Comments Received
A summary of previous engagement opportunities and feedback is contained in the
Engagement Summary Report, July 2021, prepared by WSP in Appendix 3 of the
Phase 3 Report (see Attachment #1).
5. Phase 3: Recommended Housing Strategy & Action Plan
The Phase 3: Recommended Housing Strategy & Action Plan, December 22, 2021
(Phase 3 Report) is contained in Attachment #1. It comprises minor textual changes
from the draft presented in the Phase 2 Report. Chapter 5 of the Phase 3 Report
contains the Recommended Action Plan, which is a table that summarizes the actions
that the City may consider to address the affordable housing gaps that were identified in
Phase 1 of the Study. Each action is categorized according to the following themes:
policy, financial incentives, and other. A timeframe and estimated cost of implementation
has been identified for each draft action, as well as the gap the action, identified in
Phase 1 of the Study, is intended to address, and the City department proposed to lead
the initiative.
Report PLN 02-22 January 10, 2022
Subject: Recommended Pickering Housing Strategy, Phase 3 Report Page 7
6. Conclusion
Council directed staff to undertake a comprehensive Housing Strategy Study as
generally outlined in Report PLN 05-20. The purpose of the Housing Strategy Study is
to establish the City’s role and priorities with regard to facilitating opportunities for
developing housing, affordable housing and age-friendly housing in Pickering over the
next 10 years (2021-2031).
The results of Phase 1 of the Study concluded that the City’s current housing stock is
not fully addressing the needs of City residents, and that there is an overall need for
housing options for low and moderate income earners, more affordable rental and
ownership housing in a range of unit sizes, and accessible units.
The results of Phase 2 of the Study concluded with the identification of draft actions that
the City could undertake to address the gaps in housing.
Following a fulsome engagement process throughout the Housing Strategy Study, and
incorporation of appropriate modifications to the Phase 2: Draft Housing Strategy &
Action Plan, staff recommends:
(a) That Council approve the Phase 3: Recommended Housing Strategy & Action
Plan, December 22, 2021, as the Pickering Housing Strategy & Action Plan
2021-2031, December 22, 2021; and
(b) That the appropriate officials of the City of Pickering be authorized to take the
necessary actions as indicated in the Pickering Housing Strategy & Action Plan
2021-2031, December 22, 2021.
Attachment:
1. Recommended Housing Strategy & Action Plan, December 22, 2021
Report PLN 02-22 January 10, 2022
Subject: Recommended Pickering Housing Strategy, Phase 3 Report Page 8
Prepared By:
Original Signed By
Margaret Kish, MCIP, RPP
Principal Planner, Policy
Original Signed By
Déan Jacobs, MCIP, RPP
Manager, Policy & Geomatics
Approved/Endorsed By:
Original Signed By
Catherine Rose, MCIP, RPP
Chief Planner
Original Signed By
Kyle Bentley, P. Eng.
Director, City Development & CBO
MK:ld
Recommended for the consideration
of Pickering City Council
Original Signed By
Marisa Carpino, M.A.
Chief Administrative Officer
pickering.ca
Attachment #1 to Report #PLN 02-22
December 22, 2021
Housing Strategy Study
Phase 3:
Recommended Housing Strategy & Action Plan
Housing Strategy Study
Phase 3: Recommended Housing Strategy and Action Plan
City of Pickering
December 22, 2021
1
Contents
Executive Summary ......................................................................................................... 3
1.0 Introduction ............................................................................................................ 5
1.1 Study Background .............................................................................................. 5
1.2 Study Purpose and Objectives ........................................................................... 6
1.3 Study Methodology ............................................................................................ 7
1.4 Engagement ....................................................................................................... 8
2.0 Key Housing Gaps ................................................................................................ 9
3.0 What We Heard ................................................................................................... 10
3.1 Phase 1 Engagement ....................................................................................... 11
3.1.1 Phase 1 Public Open House ...................................................................... 11
3.1.2 Phase 1 Stakeholder Meeting .................................................................... 11
3.1.3 Phase 1 Accessibility Advisory Committee ................................................ 11
3.2 Phase 2 Engagement ....................................................................................... 12
3.2.1 Phase 2 Public Open House ...................................................................... 12
3.2.2 Phase 2 Accessibility Advisory Committee ................................................ 12
3.2.2 Phase 2 Report Comments Received ....................................................... 12
4.0 Options to Support Affordable Housing ................................................................ 15
4.1 Policy Directions ............................................................................................... 16
4.1.1 What is “Affordable” Housing? ................................................................... 16
4.1.2 Housing Options ........................................................................................ 18
4.1.3 Land Supply ............................................................................................... 19
4.1.4 Protection of Primary Rental Housing ........................................................ 20
4.1.5 Affordable Housing Targets ....................................................................... 22
4.1.6 Inclusionary Zoning ................................................................................... 23
4.1.7 Additional Dwelling Units ........................................................................... 24
4.1.8 Shared Housing ......................................................................................... 27
4.1.9 Accessible Housing ................................................................................... 31
4.1.10 Remove or Reduce Minimum Parking Requirement .............................. 34
Housing Strategy Study
Phase 3: Recommended Housing Strategy and Action Plan
City of Pickering
December 22, 2021
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4.1.11 Down Zoning .......................................................................................... 35
4.2 Financial Incentives .......................................................................................... 38
4.2.1 Provide Land ............................................................................................. 38
4.2.2 Waive Fees ................................................................................................ 39
4.2.3 Prioritize and Facilitate Approvals ............................................................. 41
4.2.4 Establish a Housing Reserve Fund ........................................................... 42
4.2.5 Vacant Home Tax ...................................................................................... 43
4.3 Other Actions to Support Affordable Housing................................................... 45
4.4 Monitoring Progress ......................................................................................... 47
5.0 Recommended Action Plan ................................................................................. 48
6.0 Next Steps ........................................................................................................... 55
Housing Strategy Study
Phase 3: Recommended Housing Strategy and Action Plan
City of Pickering
December 22, 2021
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Executive Summary
The United Nations establishes that adequate housing is universally viewed as one of
the most basic human needs and that it should be seen as the right to live somewhere
in security, peace and dignity.1
The right to adequate housing was recognized by the United Nations as part of the right
to an adequate standard of living in the 1948 Universal Declaration of Human Rights
and in the 1966 International Covenant on Economic, Social and Cultural Rights2.
In 2017, the Government of Canada released its first ever National Housing Strategy
(NHS) which establishes that every Canadian deserves a safe and affordable home,
and that affordable housing is a cornerstone of inclusive communities. This $55 plus
billion, 10-year plan aims to strengthen the middle class, cut chronic homelessness in
half, fuel the economy, and give more Canadians across the country a place to call
home.3
The Ontario Human Rights Commission reported that adequate housing is essential to
one’s sense of dignity, safety, inclusion and ability to contribute to the fabric of our
neighbourhoods and societies. Without appropriate housing, it is often not possible to
get and keep employment, to recover from mental illness or other disabilities, to
integrate into the community, to escape physical or emotional violence or to keep
custody of children.4
In the Durham Region Housing Plan 2014-2024 (At Home in Durham), the Regional
Municipality of Durham acknowledged that affordable, accessible and suitable housing
is essential for healthy communities, and strong and vibrant neighbourhoods and that it
underpins the quality of life for people in Durham, at every stage of their lives.5 At Home
in Durham is an integrated housing plan that lays out the Region’s vision for housing to
2024, including an assessment of current and future housing needs; goals related to the
identified needs; and realistic actions to meet the diverse range of these needs. It
provides a description of anticipated outcomes and how progress is to be measured as
Durham works to implement its plan.
1 The Right to Adequate Housing, United Nations Fact Sheet No. 21 (Rev. 1)
2 The Right to Adequate Housing, United Nations Fact Sheet No. 21 (Rev. 1)
3 Canada’s National Housing Strategy: A Place To Call Home, November 2017
4 Right At Home: Report on the Consultation on Human Rights and Rental Housing in Ontario, May 28,
2008
5 At Home in Durham, Durham Housing Plan 2014-2024
Housing Strategy Study
Phase 3: Recommended Housing Strategy and Action Plan
City of Pickering
December 22, 2021
4
In the summer of 2020 the City of Pickering undertook the Housing Strategy Study with
the goal of establishing a strategy and action plan that addresses the need for delivering
more lifecycle housing options, including affordable and accessible units, to support
changing demographic conditions within the City over the next ten years (2021-2031).
The Study resulted in the Research and Gap Analysis Report, March 2021 (Research
Report), which concluded that the City’s current housing stock is not fully addressing the
needs of City residents. Key findings of the Research Report indicated that there is an
overall need for more housing options for low and moderate income earners, more
affordable rental and ownership housing in a range of unit sizes, and accessible units.
The Housing Strategy and Action Plan (2021-2031) provides a framework of policies
and incentives to address the gaps, and a mechanism to monitor progress as the City
works to implement its plan.
“The Housing Strategy and Action
Plan provides a framework of policies
and incentives to address the
housing gaps and mechanisms to
monitor progress as the City works
to implement its Plan.”
Housing Strategy Study
Phase 3: Recommended Housing Strategy and Action Plan
City of Pickering
December 22, 2021
5
1.0 Introduction
1.1 Study Background
All levels of government generally acknowledge that there is a housing crisis. There is a
lack of affordable housing options, both rental and ownership, for many people in the
City of Pickering.
In the Fall of 2018, the City of Pickering embarked on a process to develop its first ever
Age Friendly Community Plan (AFCP). Over 650 people participated in an extensive
community consultation program. The resulting AFCP identifies four priority areas and
68 actions that are intended to help ensure that local policies, community programs and
services, and municipal infrastructure meet the existing and future needs of older adults
in Pickering. Housing was identified as the highest priority of the four priority areas.
The City of Pickering is projected to be a driving force for residential and economic
growth in Durham Region and the Greater Toronto Area over the next two decades.
This, in combination with recent amendments to Provincial policy regarding urban area
boundary expansion and intensification targets, the Region’s current municipal
comprehensive review which includes a review of the Region’s settlement areas, a land
needs assessment, and a review of housing policy planning, also contributed to Council
recognizing the need for a Housing Strategy Study.
On June 15, 2020, following the consideration of Report PLN 05-20, Council directed
City Development staff to undertake a comprehensive housing strategy study.
The provision of housing, affordable housing, and age-friendly housing, is influenced by
all levels of government, the private and not-for-profit sectors, and a variety of
community groups and organizations. The Province of Ontario (the Province) and the
Regional Municipality of Durham (Durham Region), play key roles in the development,
funding, and administration of affordable housing.
Housing Strategy Study
Phase 3: Recommended Housing Strategy and Action Plan
City of Pickering
December 22, 2021
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1.2 Study Purpose and Objectives
The purpose of the Housing Strategy Study is to establish the City’s role and priorities
with regard to facilitating opportunities for developing housing, affordable housing and
age-friendly housing in Pickering over the next 10 years (2021 – 2031); assist Council
with decision making; provide a framework for staff in implementing its responsibilities,
including those that relate to the coordination of actions with other agencies,
organizations and governments; assist in guiding residential growth within the City; aid
in the education and creation of general public awareness of what the City is doing on
this issue; and provide a mechanism to monitor progress as the City works to implement
its plan.
The key objective of the Housing Strategy Study is to provide a framework so that the
City can ensure that there is a supply of suitable (as it relates to the size of the
household), adequate (as it relates to physical condition) and affordable (as it relates to
household income) housing for all ages and abilities within its jurisdiction. This will help
to ensure that the City meets the housing needs in support of a diverse community and
workforce.
Housing
Strategy
Identify
Priorities,
Policy &
Resources Develop a
Housing
Database
Identify
Projected
Growth
Identify &
Analyze
Housing
Needs &
GapsExamine
Housing
Policy
Context
Identify
Partnerships
Recommend
Housing
Action Plan
Create
Monitoring
Program
Housing Strategy Study
Phase 3: Recommended Housing Strategy and Action Plan
City of Pickering
December 22, 2021
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1.3 Study Methodology
The Housing Strategy Study consists of three phases:
Phase 1: Research and Gap Analysis;
Phase 2: Draft Housing Strategy and Action Plan; and
Phase 3: Recommended Housing Strategy and Action Plan.
There were engagement opportunities for the public and stakeholders throughout the
Study.
Phase 1
•Research & Gap Analysis
• Public Open House
• Stakeholder Meeting
• Advisory Committee
• Planning & Development Committee Meeting
Phase 2
•Draft Housing Strategy & Action Plan
• Public Open House
• Advisory Committee
• Planning & Development Committee Meeting
• Stakeholder Circulation
Phase 3
•Recommended Housing Strategy & Action Plan
• Planning & Development Committee Meeting
Housing Strategy Study
Phase 3: Recommended Housing Strategy and Action Plan
City of Pickering
December 22, 2021
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1.4 Engagement
The successful completion of the Study relied on meaningful public and stakeholder
engagement and consultation. The engagement process was supported by a
communications plan that included media releases, social media messages, and a
project page on the City’s website (https://www.pickering.ca/en/city-hall/housing-
strategy-study.aspx#) which went live on January 6, 2021. Feedback from the various
engagement opportunities was considered in preparing the Housing Strategy and Action
Plan, and is summarized in Chapter 3.0 of this report.
“The provision of housing,
affordable housing, and age-friendly
housing, is influenced by all levels
of government, the private and not-
for-profit sectors, and a variety of
community groups and
organizations.”
Housing Strategy Study
Phase 3: Recommended Housing Strategy and Action Plan
City of Pickering
December 22, 2021
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2.0 Key Housing Gaps
The Research and Gap Analysis Report, March 31, 2021, (the Research Report)
concluded that the City’s current housing stock is not fully addressing the needs of City
residents. Key findings of the Research Report indicated that there is an overall need
for more housing options for low and moderate income earners, more affordable rental
and ownership housing in a range of unit sizes, and additional accessible units.
The primary rental market refers to units purposely built for the rental market. In
particular, the Research Report identified the need for additional primary rental market
units of all sizes, the protection of existing rental units, and the need for additional
accessible rental units. In addition, the Research Report identified the need for home
ownership housing options for moderate income earners in a range of unit sizes as well
as accessible units.
The Province of Ontario has completed several significant policy initiatives that have an
impact on facilitating the provision and/or protection of affordable housing. They include:
the adoption of the Promoting Affordable Housing Act, 2016; the adoption of the More
Homes More Choices Act, 2019; the 2019 update to A Place to Grow, Growth Plan for
the Greater Golden Horseshoe; the 2020 update to the Provincial Policy Statement; and
the adoption of the COVID-19 Economic Recovery Act, 2020. The City has an
opportunity to address these Provincial policy directions through the Housing Strategy
and Action Plan.
“There is a need for housing
options for low and moderate
income earners, more
affordable rental and
ownership housing in a range
of unit sizes, and additional
accessible units.”
Housing Strategy Study
Phase 3: Recommended Housing Strategy and Action Plan
City of Pickering
December 22, 2021
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3.0 What We Heard
Engagement opportunities included two electronic public open houses, a Stakeholder
Meeting, and presentations to the Pickering Accessibility Advisory Committee. At the
January 21, 2021 electronic public open house staff launched the Study, provided an
overview of the purpose, objectives and work program of the Study, and listened to
feedback from delegates. On April 29, 2021, staff hosted the second electronic public
open house, provided an update on the status of the Study, a summary of the gaps in
housing in the City identified in the Phase 1: Research and Gap Analysis Report,
March 2021, and an overview of Draft Actions that the City may consider in addressing
the gaps.
On February 25, 2021 staff hosted the Stakeholder Meeting which was facilitated by
WSP and held electronically on the GoToMeeting platform. The purpose of the meeting
was to engage key stakeholders and provide an opportunity for the City to receive
solution-oriented feedback from a range of relevant perspectives and interests in
affordable housing within Pickering.
On March 17, 2021 and May 19, 2021 staff attended the electronic meetings of the
Pickering Accessibility Advisory Committee (ACC) and provided an update on the status
of the Study, preliminary findings to date, a review of the work plan and next steps. At
the May 19, 2021 AAC meeting, staff also presented an overview of the Draft Action
Plan. Most importantly, staff listened to the feedback and answered questions from the
Committee.
Furthermore, staff provided study updates to Council in March 2021 (PLN 11-21) and
June 2021 (PLN 28-21). The Draft Action Plan was contained in the June 7, 2021
Report PLN 28-21.
Engagement for Phase 2 of the Study included circulating the Phase 2: Draft Housing
Strategy and Action Plan Report (Phase 2 Report) to internal departments, agencies
and interested stakeholders for review and comment.
The Phase 3: Recommended Housing Strategy & Action Plan, December 22, 2021,
(this report) was modified from the Phase 2 Report to include consideration for feedback
received from the circulation of the Phase 2 Report .
Housing Strategy Study
Phase 3: Recommended Housing Strategy and Action Plan
City of Pickering
December 22, 2021
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3.1 Phase 1 Engagement
3.1.1 Phase 1 Public Open House
Electronic Public Open House 1, the first public engagement opportunity for the Study,
took place on January 21, 2021 and was advertised on the Community Page of the
News Advertiser on January 7 and 14, 2021, as well as on the City’s website. In
addition, a news release was issued on January 14, 2021, followed by social media
messages. City staff also sent notice of the Electronic Public Open House directly to
members of the Accessibility Advisory Committee, Seniors Community Services
Council, and the Age Friendly Steering Committee.
Three delegates, in addition to Maurice Brenner, City Councillor, Ward 1 and Shaheen
Butt, City Councillor, Ward 3, participated in the discussion. As of September 9, 2021 a
total of 178 members of the public viewed the Public Open House 1 on the City’s
YouTube channel.
A complete summary of comments/questions and staff responses associated with the
January 21, 2021 Electronic Public Open House 1 were reported to Council in Report
PLN 11-21 and is contained in Appendix 1 to this report.
3.1.2 Phase 1 Stakeholder Meeting
Representatives from the development industry, consultants, agencies, and other
relevant organizations were invited to attend a Stakeholder Meeting on February 25, 2021.
Nineteen individuals participated and were provided nine discussion questions in
advance of the meeting. The questions were developed based on the findings of the
Research Report, and largely focused on exploring the various issues and opportunities
that were identified through the Research Report.
A summary of comments/questions associated with the February 25, 2021 Stakeholder
Meeting is contained in Appendix 2 to this report.
3.1.3 Phase 1 Accessibility Advisory Committee
Staff attended the March 17, 2021 electronic meeting of the Pickering Accessibility
Advisory Committee and provided an overview of the Study, including the background,
purpose, objectives, and work plan. More specifically, the housing continuum was
presented and the definition of “affordable” was explained. The roles of Federal,
Provincial and Regional governments in housing was also explored. The presentation
concluded with confirming preliminary findings to date and the next steps of the Study.
Comments from the Committee are detailed in Appendix 3, Housing Strategy Study,
Engagement Summary Report, July 2021.
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3.2 Phase 2 Engagement
3.2.1 Phase 2 Public Open House
Electronic Public Open House 2 took place on April 29, 2021 and was advertised on the
Community Page of the News Advertiser on April 15 and 22, 2021, as well as on the
City’s website. City staff also sent notice of the Electronic Public Open House 2 directly
to members of the Accessibility Advisory Committee, Seniors Community Services
Council, the Age Friendly Steering Committee, and participants at the February 25, 2021
Stakeholder Meeting.
As of September 9, 2021 a total of 72 members of the public viewed Public Open House 2
on the City’s YouTube channel. Staff heard from two delegates during the Open House,
and received a few emailed comments prior to, and during the Open House.
A summary of comments/questions associated with the April 29, 2021 Electronic Public
Open House 2 were reported to Council in Report PLN 28-21 and is contained in
Appendix 4 to this report.
3.2.2 Phase 2 Accessibility Advisory Committee
Staff attended the May 19, 2021 electronic meeting of the Pickering Accessibility
Advisory Committee and provided an update on the status of the Study, including a
review of the work plan to confirm next steps. Information regarding housing gaps were
identified, while tools identified in the Draft Action Plan were reviewed. These tools
included planning policy, financial incentives, partnership, education, advocacy and
other actions. Comments from the Committee are detailed in Appendix 3, Housing
Strategy Study, Engagement Summary Report, July 2021.
3.2.2 Phase 2 Report Comments Received
Comments received on the Phase 2 Report are summarized below.
3.2.2.1 Region of Durham
The Region of Durham has submitted comments in support of all of the draft actions
contained in Section 4 and summarized in Section 5 of the Phase 2 Report. In addition,
the Region of Durham acknowledges and offers its support in the role it can play in
assisting the City of Pickering in connecting interested developers with experts or
consultants in the field of management and operation of affordable, rental housing
(Action Items 3.2 and 3.4). Further, the Region of Durham offers its assistance in
developing key performance indicators and sharing housing data for the purpose of
reporting on housing measures in the City of Pickering (Action Item 3.7).
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3.2.2.2 City of Pickering Finance Department
The City of Pickering Finance Department provided the following comments:
In the fall of this year, Council approved Report FIN 15-21 that included the “5 Year
Capital & Operating Plan” (5YCOP). The 5YCOP was developed by Watson &
Associates and was based on Council approved inputs consisting of: 2022 Preliminary
Draft Capital Budget & Four Year Forecast (FIN 13-21) and the City’s Asset
Management Plan (FIN 14-21). Excluding the City Centre project, the draft capital plan
and forecast for the five years has an estimated cost of $410.7 million. To fund this plan,
the City is relying on Development Charge (DC) funding as a critical source of funds
and the DC funding represents 43.58 per cent of the revenue source.
The City Centre is a key Council initiative with a total estimated cost of $207.7 million
with DC funding providing approximately $110.5 million as a revenue source. If you add
the City Centre DC funding requirements with the Capital forecast, the City is relying on
DC funding to provide $289.5 million as a source of capital funding. At this current time
and as outlined above, it is recommended that the City not waive its fees and or
Development Charge fees on a short term basis, however, this decision should be
reviewed post 2026 (Action Item 2.2).
Letters of Credit (LC) should be viewed as financial insurance. The LC protects the City
and by default, the existing taxpayers from funding project costs that are the
responsibility of the “Developer.” It is recommended that the LC requirement not be
waived (waiving LCs has been removed from the Phase 3 Report).
The 5YCOP and the Council approved Asset Management Plan highlighted the need to
invest in the City’s existing infrastructure through additional special levies. At this
current time, the City does not have the financial flexibility to fund a Housing Reserve
Fund (Action Item 2.4). However, this decision should be revisited and the City could
consider a contribution and/or special levy as a medium term strategy post 2026.
There is an administration component associated with the implementation of a Vacant
Home Tax. Before proceeding with implementing this new “tax,” the administration
component has to be thoroughly investigated to determine if the benefits are greater
than the cost (Action Item 2.5).
3.2.2.3 North East Pickering Landowners Group
Malone Given Parsons Ltd. (MGP), planning and land economic consultant, submitted
comments on behalf of the North-East Pickering Landowners Group (NEPLOG)
expressing general support of the goals and objectives identified within the Phase 2
Report. The NEPLOG consists of a number of established and experienced community
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and home builders who own multiple properties in North-East Pickering, and, through
the Region of Durham’s municipal comprehensive review (Envision Durham), has
formally requested that its lands be brought into the urban boundary to accommodate
residential and employment growth to 2051.
The NEPLOG commented that:
• There is an important difference between subsidized housing and affordable
housing that is available on the free market. The latter may contain a number of
building and unit types (stacked townhouses, back-to-back townhouses, etc.) that
are considered affordable but not commonly considered in government
programming and subsidizing, but which still contribute to providing a range of
housing options for various income levels.
• The development approvals process for new communities should be streamlined
and expedited to bring housing into the market sooner to address supply.
• Bringing the North-East Pickering lands into the urban boundary will allow for the
City to increase its residential land supply, which will contribute to increasing the
overall housing stock within the City over the planning horizon.
• The NEPLOG is supportive of collaboration and partnerships, between the
development sector and the City, throughout the process of developing each of the
draft actions.
“Engagement with key
stakeholders provide an
opportunity for the City to
receive solution-oriented
feedback from a range of
relevant perspectives and
interests in affordable
housing within Pickering”
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4.0 Options to Support Affordable Housing
Key findings of the Research Report indicated that there is an overall need for more
housing options including a mix of types, tenure and affordability levels to meet the
needs of the City’s residents. This section outlines Policy Directions (subsection 4.1)
and Financial Incentives (subsection 4.2) that the City could consider to facilitate
opportunities for developing housing, affordable housing and age-friendly housing in
Pickering over the next 10 years.
Policy Directions
• Define Affordable
Housing
• Define Housing
Options
• Land Supply
• Protect Primary Rental
Housing
• Affordable Housing
Targets
• Inclusionary Zoning
• Additional Dwelling
Units
• Accessible Housing
• Reduce Parking
Requirement
• Down Zoning
FinancialIncentives
• Provide Land
• Waive Fees
• Prioritize and Facilitate
Approvals
• Housing Reserve Fund
• Vacant Home Tax
Other Actions
• Provide Guidance
• Partnerships
• Monitoring Plan
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4.1 Policy Directions
4.1.1 What is “Affordable” Housing?
The City of Pickering Official Plan does not formally define “affordable housing”. It does,
however describe it as meaning annual housing costs (rent or mortgage payments) that
do not exceed 30 percent of gross household income.
CMHC defines affordable housing as generally meaning a housing unit that can be
owned or rented by a household with shelter costs (rent or mortgage, utilities, etc.) that
are less than 30 percent of its gross income6.
The Province, in the Provincial Policy Statement, 2020 (PPS)7 and Durham Region, in
its official plan8, provide the following definition for Affordable Housing:
“Affordable: means
a) in the case of ownership housing, the least expensive of:
1. housing for which the purchase price results in annual accommodation
costs which do not exceed 30 percent of gross annual household
income for low and moderate income households; or
2. housing for which the purchase price is at least 10 percent below the
average purchase price of a resale unit in the regional market area;
b) in the case of rental housing, the least expensive of:
1. a unit for which the rent does not exceed 30 percent of gross annual
household income for low and moderate income households; or
2. a unit for which the rent is at or below the average market rent of a unit
in the regional market area.”
Durham Region, in its Housing Policy Planning Discussion Paper prepared as part of its
municipal comprehensive review of its Official Plan, Envision Durham, presents, and
discusses, other affordability measures that may be considered for rental housing, such
as using a higher ratio of 35 per cent of income spent on rent, measuring income at the
50th percentile to reflect the median, or measuring income at the 40th percentile to reflect
a lower range of low and moderate incomes. In considering affordable homeownership,
6 National Housing Strategy Glosary of Common Terms (2018),
https://eppdscrmssa01.blob.core.windows.net/cmhcprodcontainer/files/pdf/glossary/nhs-glossary-
en.pdf?sv=2018-03-28&ss=b&srt=sco&sp=r&se=2021-05-07T03:55:04Z&st=2019-05-
06T19:55:04Z&spr=https,http&sig=bFocHM6noLjK8rlhy11dy%2BkQJUBX%2BCDKzkjLHfhUIU0%3D
7 Provincial Policy Statement, 2020, https://files.ontario.ca/mmah-provincial-policy-statement-2020-
accessible-final-en-2020-02-14.pdf
8 Durham Regional Official Plan, Consolidation May 26, 2020, https://www.durham.ca/en/doing-
business/resources/Documents/PlanningandDevelopment/Official-Plan/2020-Durham-Regional-Official-
Plan-Consolidation---Revised-1.pdf
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Durham Region presents other measures that could be used to calculate affordability
including CMHC’s Gross Debt Service ratio, which is 35 per cent of income spent on
mortgage, property taxes, and heat, or measuring income at the 50th percentile to reflect
the mid-range for low and moderate incomes.
In the City’s response to Durham Region’s question about redefining “affordable
housing”, Council recommended that the Region maintain its definition of affordable
housing to be consistent with the Provincial Policy Statement and other municipalities in
the Greater Toronto and Hamilton Area, and for the purpose of monitoring and
comparability.
Currently, the municipalities of Oshawa and Clarington have embedded definitions of
“affordable housing” in their official plans, that are consistent with the definition in the
PPS. The Town of Ajax and the Town of Whitby do not currently have a definition of
“affordable housing” in their official plans. Whitby is currently undertaking an official plan
review and may consider including a definition of “affordable housing” in its official plan.
Increasingly the term “attainable housing” is being used. There is no universally
accepted definition of “attainable housing”. However, it generally refers to non-subsidized,
for-sale housing that is affordable to households with workforce incomes9. This type of
housing is meant to fill the gaps between government subsidized housing (community
housing) and the free market, to provide for workers who earn enough income to be
disqualified from government assistance, but not enough to afford what is available in
the market.
Proposed Action
Add a definition of “affordable housing” to the City’s Official Plan which
includes reference to the average purchase price and average market rent
in accordance with the definition in the Provincial Policy Statement, 2020.
9 “workforce incomes” generally refers to gainfully employed members of the workforce earning between
generally 80 and 120% of median income. In some market areas the upper end of the range may be
greater than 120%.
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4.1.2 Housing Options
In 2020, the Province updated the Provincial Policy Statement and introduced a
definition for the term: “housing options” as follows:
“Housing options: means a range of housing types such as, but not limited to
single-detached, semi-detached, rowhouses, townhouses, stacked townhouses,
multiplexes, additional residential units, tiny homes, multi-residential buildings.
The term can also refer to a variety of housing arrangements and forms such as,
but not limited to life lease housing, co-ownership housing, co-operative housing,
community land trusts, land lease community homes, affordable housing,
housing for people with special needs, and housing related to employment,
institutional or educational uses.”
The policies of the Durham Regional Official Plan (ROP) provide direction for a wide
diversity of residential dwellings by type, size and tenure in Urban Areas to satisfy the
social and economic needs of present and future residents of the Region (ROP Section 4).
Specifically, there are policies that require at least 25% of all new residential units to be
affordable to low and moderate income households (4.2.4), and that require a 3-year
supply of residential units that are in draft approved and registered plans of
subdivision/condominium (4.2.5). There are also policies which support opportunities to
increase the supply of housing through intensification, such as second units in single
detached dwellings, conversion of industrial/commercial buildings, and infill housing
(4.3.2). Through the Region of Durham’s municipal comprehensive review, Envision
Durham, the Region is proposing to add a definition, based on the PPS, for the term
“housing options”.
Completed in the Fall of 2019, the Pickering Age Friendly Community Plan (AFCP) is a
five year plan that establishes a vision, and guiding principles to help ensure that local
policies, community programs and services, and municipal infrastructure meet the
existing and future needs of older adults in Pickering. There are 68 actions identified in
the AFCP and each are categorized by a World Health Organization (WHO) theme.
Housing is identified as the highest priority of the eight identified themes in the AFCP
and Action Item 1.1 identifies the need for delivering more lifecycle housing options,
including affordable and accessible units to support changing demographic conditions.
In 2016, the majority of dwellings in Pickering were single detached dwellings (60.8%).
Since then, the number and proportion of building permits for townhouses and
apartment units have grown, and single detached and semi-detached dwellings
combined have declined. In 2020, apartment units accounted for the greatest
proportion of building permits issued. This is largely due to the approval of a 12-storey
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rental apartment building. Recently approved plans of subdivision and condominium
indicated that while single detached homes accounted for a little over half the dwelling
units, the remaining units were townhouses. Since 2016, the proportion of townhouses
approved through plans of subdivision and condominium has slowly increased, while
the proportion of single detached dwellings has fluctuated.
Pickering continues to increase its diversity of housing types from a majority of single
detached dwellings since 2016, to townhouse and apartment units combined. Over the
last five years, the combined total number of townhouses and apartment units in
approved building permits and approved plans of subdivision and condominium, has
contributed to the larger proportion of newly constructed dwelling units compared to the
proportion of single detached dwellings.
The City’s Official Plan already contains a number of policies which support a diverse
range of housing options. However, the POP does not have a definition for “housing
options”. Adding a definition for the term “housing options” that is consistent with the
Provincial Policy Statement, to the POP would be helpful to provide clarity.
Proposed Action
Add a definition of “Housing Options” to the City’s Official Plan.
4.1.3 Land Supply
Currently, the POP policy states that a minimum 10 year supply of residentially
designated lands must be maintained to meet anticipated long-term housing demands
(POP Policy 6.3 (a)) and a minimum 3 year supply of residential land in the form of draft
approved plan and/or registered plans, to meet anticipated short-term housing demands
(POP Policy 6.3 (b)). The POP should be updated to reflect the recent changes to the
PPS in terms of an increase from 10 to 15 year supply of residentially designated lands
to meet anticipated long-term housing demands.
Proposed Action
Amend the City’s Official Plan to reflect the Provincial Policy Statement
2020 requirement for the municipality to maintain the ability to accommodate
residential growth for a minimum of 15 years (as opposed to 10 years as
currently written).
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In addition, recent amendments to the PPS enable the Region of Durham to update its
policy to increase from 3 to 5 years the minimum number of years to accommodate a
short-term supply of residential lands. Based on the Proposed Housing Policy Directions
Report of Envision Durham, the Region appears to be satisfied with its minimum three
year requirement, and has not proposed any associated change to its ROP. The Land
Needs Assessment currently being undertaken as part of the Growth Management
Study of Envision Durham, will determine the supply and mix of housing that is
appropriate to satisfy forecasted market demand for housing in Durham, including the
City of Pickering. The City’s policy in this regard will ultimately be determined by the
outcome of the Envision Durham exercise.
Proposed Action
Consider amending the City’s Official Plan to reflect the Provincial Policy
Statement 2020 option to increase from 3 to 5 years the minimum number
of years to accommodate a short-term supply of residential lands, subject
to the outcome of Durham Region’s Envision Durham exercise.
4.1.4 Protection of Primary Rental Housing
The Research Report identified the need for additional primary rental market units of all
sizes and the importance of protecting existing rental units.
The private rental market consists of the primary or purpose-built rental market and the
secondary rental market. The primary rental market includes all self-contained rental
units where the purpose of the structure is to house tenants. The secondary rental
market represents self-contained units, which were not purposely built for the rental
market, but are currently being rented out.
In Pickering the number of primary rental units has remained consistent since 2007 and
the overall vacancy rate has been declining to below 2% for all units and below 1% for
three bedroom units.
Average market rents for purpose-built rental units in 2015 were not affordable to low
and moderate income earners (renter households with incomes within the 1st to 4th
income deciles) and only a high income earner would be able to afford the average
market rent (all apartment types) in the secondary market in Pickering in 2015 without
having to spend more than 30% of their income on rent. Further, a single person who
was working full time in 2015 and earning the minimum wage would not be able to
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afford any apartment unit type in Pickering, in either the primary or secondary rental
market, without having to spend much more than 30% of their gross income on housing
costs.
In 2015, 25.2% of all households in Pickering were facing housing affordability issues
(i.e., spending more than 30% of household income on housing costs) and of those,
almost half were renters.
In addition to promoting and incentivizing the provision of additional primary rental units,
especially one and two bedroom units, the City should consider ways of protecting its
existing primary rental housing stock.
The Ontario Municipal Act, 2001 establishes when and how municipalities may prohibit
and regulate the demolition and/or conversion of rental housing.
Currently the City does not have any official plan policies to protect rental housing from
conversion to condominium tenure or from demolition.
Although Durham Region official plan policies currently protect purpose-built rental
housing by discouraging condominium conversions when vacancy rates are at or below
3 percent, Durham Region, through Envision Durham, is considering adding policies
that would permit conversions subject to certain conditions. Through the Envision
Durham consultation process, the City has requested clarification of these conditions
and has recommended that a Regional Official Plan Amendment continue to be
required for requests for rental housing conversions.
The ROP does not currently have policies to protect rental housing from demolition.
However, it is considering adding policies that encourage area municipalities to protect
rental housing from demolition.
It is recommended that policies be added to the POP to protect existing rental housing
from demolition and conversion in order to help address the deficit of primary rental
market units in the City.
Proposed Action
Add new Official Plan policy to protect existing rental housing stock from
conversion to condominium.
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Proposed Action
Add new Official Plan policy which prohibits the demolition of existing
rental housing units unless the proposed redevelopment meets specified
conditions.
4.1.5 Affordable Housing Targets
The Phase 1: Research and Gap Anlaysis Report established that:
• There is a limited supply of affordable housing, particularly for households with low
incomes, and a very limited supply of purpose-built rental housing, especially one
and two bedroom units.
• Affordable homeownership is severely lacking in the City of Pickering, evidenced
by the fact that only the highest income earners are able to afford a resale home of
any type within the City.
• The aging population suggests a need for more accessible housing options.
• W hile the City is experiencing a shift to smaller households, the majority of
households have three or more members, suggesting a need for two or more
bedroom units.
Currently the POP contains policies that encourage and support the supply of affordable
housing. In particular, policy 6.4(a) requires that a minimum 25 percent of new
residential construction, on a City-wide basis, be of forms that would be affordable to
households of low or moderate income. In addition, the POP, Appendix 1, was
established to provide potential targets for a number of Livability Indicators, including
several under the heading for Housing. Within the Housing section, “affordable
production as a total of production” identifies a minimum of 25 percent. However, there
is no indication of the equivalent numerical value of that minimum 25 percent, or the
numerical value associated with the breakdown according to housing type.
In its Proposed Policy Directions Report of Envision Durham, March 2021, the Region is
proposing to maintain a minimum affordable housing target of 25 percent to apply to the
Region as a whole, and to establish a new affordable housing target for at least 35
percent of new housing within Strategic Growth Areas.
As previously noted, the City’s Official Plan already includes the requirement for a
minimum of 25 percent of all new construction, across the city, to be affordable. It may
be worthwhile for the City to consider a higher affordable housing target of a minimum
of 35 percent of new housing within Strategic Growth Areas. This could assist the City in
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reaching its overall target of 25 percent affordable housing City-wide. In order to
appropriately address the matter of affordable housing targets, additional detailed
information and analysis, that is typically investigated through an “Assessment Report”
would be necessary. As discussed in subsection 4.1.6 of this report, Inclusionary
Zoning, the Region will be undertaking an Assessment Report for its regional market
area. This work, when completed, will assist Pickering in the discussion regarding the
numerical values of affordable housing targets, and the merit in targeting specific areas
within the City, such as Strategic Growth Areas, for affordable housing targets.
In order to implement and monitor affordable housing targets, the City may require the
submission of an Affordability Analysis as part of a complete application for residential
or mixed-use development. An Affordability Analysis may include information such as
the lot area, type and size of the proposal, number of residential units and affordable
residential units, period of time that the units will remain affordable, an analysis of how
the affordable residential component, types and sizes of units, addresses the current
and anticipated affordable housing demand and an analysis of the current average
market price and/or the current average market rent for each housing type taking into
account the location. The content of an Affordability Analysis, and the associated
professional(s) deemed qualified to complete the analysis, will be determined through
the policy implementation process.
Proposed Action
Add new Official Plan policy requiring the submission of a Housing
Affordability and Accessibility Analysis as part of a complete application
for residential development.
4.1.6 Inclusionary Zoning
Introduced by the Province in 2016 through the Promoting Affordable Housing Act, 2016,
“iinclusionary zoning” is a land-use planning tool that may be used by municipalities to
require affordable housing units to be included in proposed developments. In 2019 the
More Homes More Choices Act, 2019 (former Bill 108) limited the use of inclusionary
zoning by municipalities to Protected Major Transit Station Areas, or where a
development permit system/community planning permit system is in place.
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In order for a municipality to utilize the “inclusionary zoning” provisions enabled through
the Planning Act, it must undertake an “assessment report” to inform the development
of appropriate official plan policies and zoning by-law provisions. In accordance with
Ontario Regulation 232/18, this assessment report must include an analysis of
municipal demographics and population, household incomes, housing supply by type
(current and planned), housing types and sizes that might be needed to meet
anticipated demand for affordable housing, current average market price/rent by
housing type across the municipality, and a written opinion on this analysis from a
person independent of the municipality and who is qualified to review the analysis. The
assessment report must be updated every five years to determine whether the official
plan policies require amending. A report detailing the performance of the inclusionary
zoning by-law is required to be prepared every 2 years and address prescribed matters.
In addition, provincial regulation prohibits the application of Section 37 Density
Bonusing on developments where inclusionary zoning is applied.
The adoption of by-laws to implement inclusionary zoning cannot be appealed to the
Ontario Land Tribunal, except by the Minister of Municipal Affairs and Housing.
Currently, there are no policies in the Pickering Official Plan that enable the use of
inclusionary zoning. The Region of Durham has indicated that they will be preparing an
assessment report for their jurisdiction. This work, when completed, will enable the local
municipalities, including the City of Pickering, to establish official plan policies and
zoning by-law provisions related to inclusionary zoning.
Proposed Action
Consider adding new Official Plan polices to implement “inclusionary
zoning” in Major Transit Station Areas, following Durham Region’s
completion of the “Assessment Report”.
4.1.7 Additional Dwelling Units
Additional Dwelling Units (“ADUs”) are self-contained residential units with a private
kitchen, bathroom facilities and sleeping areas within dwellings or within detached
structures ancillary to a dwelling.
ADUs may be in the form of basement apartments, coach houses, garden suites,
granny flats, in-law apartments, or nanny suites. ADUs are sometimes referred to as
Secondary Suites, and the Planning Act refers to these units as “additional residential
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units” Since the City’s Comprehensive Zoning By-law Review Study, calls these units
“Additional Dwelling Units”, we have used this term for the purpose of the Hosuing
Strategy Study.
ADUs can provide an affordable rental option to increase the housing supply, as well as
allow homeowners to earn additional income; provide more housing options for
extended families, elderly parents, or live-in caregivers; help create mixed-income
communities; gently intensify within existing communities; and make more efficient use
of existing municipal services and public transit.
Currently the City’s official plan refers to ADUs as “accessory apartments” or “accessory
dwellings”, and establishes policy that enables Council to appropriately zone to permit
this type of use.
Currently the City’s zoning by-laws permit ADUs within single detached, semi-detached,
or townhouse units. In addition, in accordance with By-law 7579/17, all ADUs are
required to be registered to officially recognize the property as a legal “two-dwelling unit
property”. The registration ensures the two-dwelling unit property meets required safety
standards, ensures the ADU can be provided with emergency response and community
services, and assists in housing monitoring and real estate transactions.
The Two-Dwelling Unit By-law 7579/17 can be found here:
https://corporate.pickering.ca/WebLink/DocView.aspx?dbid=1&id=175243&page=1&cr=1
Changes to the Planning Act, introduced through the More Homes, More Choice Act in
2019, permit a total of three residential units on one property. Some of the changes
introduced include:
• requiring municipalities to permit additional units in detached, semi-detached, and
townhouses in primary dwellings and within ancillary buildings or structures;
• prohibiting municipalities from applying a development charge for second units
above garages or in laneways, or built in new homes (subject to restrictions); and
• requiring municipalities to permit an additional unit in the primary dwelling unit and
another in any ancillary building, effectively allowing up to three residential units on
a single lot.
Current City zoning regulations permit an additional dwelling unit within a detached, or
semi-detached dwelling provided:
(a) a total of three (3) parking spaces are provided on the property where the
accessory dwelling unit is located;
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(b) the maximum floor area of an accessory dwelling unit shall be one hundred (100)
square metres; and
(c) a home-based business is prohibited in either dwelling unit of a dwelling
containing an accessory dwelling unit.
Some, or all, of the conditions associated with the zoning provision for additional
dwelling units in the City’s zoning by-laws may present barriers to creating additional
dwelling units within the City, and as a result prevent the creation of additional
affordable housing units. In addition, ADUs are currently not permitted in the City’s
agricultural zone.
There is merit in reviewing the City’s zoning by-laws and Two-Dwelling Unit By-law to
ensure that it reflects the More Homes, More Choice Act changes to permit ADUs in a
detached, semi-detached or townhouse, as well as in a building or structure ancillary to
a detached house, semi-detached or townhouse. There is also merit in considering
allowing ADUs in rural areas subject to the capacity of well and septic systems, and
considering reducing the City’s parking requirement for ADUs located in areas well
served by transit, and to examine other existing zoning requirements that may present
barriers to increasing ADUs within the City.
Proposed Action
Additional Dwelling Units:
(a) Review and update the City zoning by-laws and Two-Dwelling Unit
By-law to reflect the More Homes, More Choice Act changes to
permit Additional Dwelling Units in a detached, semi-detached or
townhouse as well as in a building or structure ancillary to a
detached house, semi-detached or townhouse.
(b) Consider allowing Additional Dwelling Units in rural areas subject to
the capacity of well and septic systems.
(c) Consider reducing or removing the City’s parking requirement for
Additional Dwelling Units located in areas well served by transit.
(d) Examine other existing zoning requirements that may present
barriers to increasing Additional Dwelling Units within the City.
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4.1.8 Shared Housing
Housing has increasingly become more expensive and at the same time the number of
single person households is increasing. Shared living is an option to address high
housing costs and loneliness, which can be a by-product of living alone. Shared living
can take different forms, such as shared ownership, multi-tenant, or multi-generational.
4.1.8.1 Co-ownership Housing
New models of shared ownership have emerged in response to housing affordability
involving third party lenders. In Canada, there are two forms of shared equity programs.
A third party can invest in a share of a property, or they can provide the homeowner
with a second mortgage.
For shared equity mortgage programs, the second mortgage often requires no
payments until the home is sold, refinanced or at the end of a fixed term. If the home
price appreciates over time, both parties share in the profit.
The federal First-Time Home Buyer Incentive is an example of shared equity housing
that will allow the CMHC to lend a homeowner money for a shared stake in the equity of
a home. Options for Homes and Trillium Housing are two organizations that have
helped create affordable housing in the GTA with shared equity financing models.
The Province defines “co-ownership housing” as a shared living arrangement where two
or more people own and live in a home together. Co-owners may share living spaces
like kitchens and living rooms, or the home may be divided into separate units.
The Golden Girls Act was passed in 2019, which prevents municipalities from using
local by-laws to prohibit unrelated seniors from cohabitating. A senior, for the purpose of
the Golden Girls Act, means an individual who is 55 or older. The Golden Girls Act was
inspired by the obstacles faced by a group of four women planning to renovate a shared
home that would enable them to age in place. The home was to have private rooms for
each of the homeowners, shared common areas, such as living and kitchen, and
include building two caregiver suites in the basement.
Recently, the Province created the “Co-owning A Home” guide which contains practical
information about co-owning a home as well as outlining the various forms of co-ownership.
The guide was developed partly in response to the Province’s More Homes, More
Choice: Ontario’s Housing Supply Action Plan, in recognition that fresh approaches will
give people more options and access to housing that is affordable.
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4.1.8.2 Multi-generational Living
Multi-generational homes have members of more than two generations living under the
same roof. Historically, multi-generational living was common. Currently, in Ontario,
multi-generational living appears to be more common among immigrants. Research
shows that prior to the COVID-19 pandemic, 20 percent of Canadians were living in
multi-generational housing.10 Further, the pandemic has highlighted a desire for flexible
spaces to also accommodate aging family members so that they may be cared for at
home as opposed to living in a long-term care facility.
There are both benefits and challenges to living with family. Economic, health and
support are three key reasons for generations to live together. Some of the challenges
include: division of chores or responsibilities can cause issues among family members,
meeting privacy needs of various family members, financial constraints of all family
members, accommodating living spaces for different age ranges, such as the elderly or
very young children.
In 2018, a developer in Pickering started offering a multi-generational home with a
design that incorporates a bungalow for grandparents or adult children that sits inside a
two-storey house and operates independently. The original design was suitable for a lot
with a 50 foot frontage. The developer is now working on a design that would fit on a
37 foot lot frontage.
Supporting multi-generational living facilitates a form of gentle intensification, while
addressing the needs of large and multi-generational families and creating complete
communities.
Proposed Action
Encourage developers to consider designing flexible spaces that can
accommodate shared living or mulit-generational living.
4.1.8.3 Multi-tenant Living (Rooming Houses)
Singles and/or couples of a variety of age groups are increasingly exploring or choosing
housing options where they can share rented accommodation. This is usually due to
financial contraints. Shared living for unrelated persons in rental accommodation, or
multi-tenant living, is sometimes referred to as “rooming houses”. Rooming houses have
traditionally been associated with vulnerable populations such as individuals living with
an addiction or a mental health challenge, a physical disability, and/or racialized
10 https://www.thestar.com/life/homes/2020/06/17/multi-generational-housing-is-a-growing-trend-thats-
back-with-a-new-twist.html?rf
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individuals. In addition, the term “rooming house” is sometimes confused with “group
home”. The distinction between “rooming house” and “group home” is that group homes
have supervised care for the occupants and are licensed and approved by the Province.
As affordable housing has become more and more scarce, there are a wider variety of
individuals opting to share rental accommodation, including young adults newly in the
workforce, seniors, and students.
Some municipalities regulate shared rental accommodation using municipal by-laws,
zoning by-laws and/or licensing programs. This has resulted in serious concern from the
Ontario Human Rights Commission. Municipal by-laws, including zoning by-laws,
cannot conflict with the Ontario Human Rights Code. The Ontario Human Rights
Commission has identified “that zoning by-laws should be deemed invalid if their
purpose is to regulate the user, as opposed to the use of the land”11. In addition, the
Ontario Human Rights Commission identified a number of concerns regarding
regulations that impacted rooming houses (as well as group homes, residential care
homes, senior’s community houses, and lodging houses among other shared rental
accommodation), namely regulations that:
• are not based on a legitimate urban planning rationale and have the effect of
people zoning as opposed to zoning the use of land;
• result in barriers to the location of affordable housing, lodging houses, emergency
shelters, care facilities and retirement homes; and
• place onerous zoning restrictions on housing serving people from Ontario Human
Rights Code protected groups, which may prevent people from living in the
neighbourhoods of their choice.
Through the City’s engagement, staff heard first hand from a landlord specializing in
shared rental accommodation about the challenges associated with this form of rental
housing including an outdated perception and stigma associated with it. He detailed
what he sees as systemic obstacles to multi-tenant living such as:
• the lack of tenancy rights for a tenant if they are sharing a bathroom or kitchen with
the owner, or the owner’s immediate family members;
• the lack of tenancy rights for a tenant paying his/her rent to a housemate who is
the a tenant signatory under a lease (i.e. a subletter). A tenant not listed as a
signatory under a lease has no tenancy protection because there is no
landlord/tenant relationship;
11 Ontario Human Rights Commission’s comments on the City of Toronto’s proposed Zoning By-law dated
September 25, 2009, http://www.ohrc.on.ca/es/node/2545
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• the difficulty in meeting the Ontario Buiding Code requirements when converting an
existing house to a mulit-tenant shared accommodation;
• the reluctance of financial institutions to lend money to owner/operators of rooming
houses; and
• the reluctance of insurance companies to insure rooming houses.
From his perspective as a private landlord and operator of multi-tenant housing, he sees
the need for an all-government (municipal, regional, provincial, federal) approach to
overcome these structural barriers to shared living.
Also through engagement, staff heard that there is interest in an affordable housing
arrangement whereby seniors and younger single individuals co-habitate. The
arrangement is such that the senior provides accommodation to the singleton for a
reduced rent in return for some assistance to the senior, such as lawn mowing, snow
removal etc.
The Pickering Official Plan policies encourage the provision of a wide variety of housing
types and tenure to meet the needs of existing and future populations of the City, which
includes shared living accommodation. The City does not have any zoning by-laws that
prohibit rooming houses.
Through the City’s Comprehensive Zoning By-law Review Study, the following definitions
are being proposed for Group Home and Rooming Home:
“Group Home: means a dwelling occupied by not more than 10 persons
exclusive of staff, who live as a single housekeeping unit because they require a
supervised group living arrangement, in a facility licensed, approved and
supervised in accordance with the requirements of the Province.”
“Rooming Home: means a dwelling containing no less than three (3) but no more
than 10 individual rooms rented for accommodation and includes communal but
not individual cooking facilities, and where the occupants do not constitute a single
housekeeping unit. The use shall not provide respite care or provide
accommodation to the traveling public and does not include a group home, long-
term care home, retirement home, hotel, or short-term rental.”
The City does not have a registration or licensing program related to rooming houses,
and does not prohibit people from sharing housing accommodation. As with the
construction of all types of housing in the City of Pickering, rooming houses, must meet
the requirements of the Ontario Building Code (OBC) with respect to building and fire
safety.
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To further support shared living, regardless of tenure, the City could amend its housing
policies to openly recognize multi-tenant living. This may also be achieved through the
inclusion of the definition of “housing options” as discussed in subsection 4.1.2 of this
report.
Proposed Action
Ensure that the City’s Official Plan policies and zoning regulations do not
present barriers to shared living (co-housing, co-living) arrangements in
appropriate areas as-of-right.
4.1.9 Accessible Housing
Accessible design refers to accommodating individuals with disabilities, whereas
universal design is accommodating all people regardless of age, gender, stature,
ability/disability, etc. Barrier-free design is part of accessible design and include such
things as: wheelchair lifts, curb ramps, handrails, roll-in showers, and wheelchair
accessible hallyways. Inclusive design is generally synonymous with universal design
but can cater to very specific users and their experience. These terms are very much
interrelated and overlap in definition but with some nuances.
Through the engagement we heard that every adult has a period disability or impaired
mobility in their lifetime. As a result of illness, accident or disease, one can temporarily
lose full physical function and can benefit from universally designed spaces.
As noted in subsection 4.1.2, Action Item 1.1 of the Pickering AFCP identifies, among
other things, the need for delivering more accessible housing units to support changing
demographic conditions, specifically a growing seniors population in Pickering that is
forecast to be approximately 43% of the total population in Pickering by 2032.12
The POP includes policies that encourages the provision of housing for people with
special needs including seniors. The terms “special needs housing” and “seniors
housing” are not formally defined in the POP. However, the PPS defines special needs
as it relates to housing and it includes “adaptable and accessible housing, and housing
for persons with disabilities such as physical, sensory or mental health disabilities, and
housing for older persons”.
12 Pickering Age Friedly Community Plan, Final Report, September 12, 2019,
https://www.pickering.ca/en/living/resources/Programs/55/City-of-Pickering-Age-Friendly-Community-
Plan---FINAL-acc.pdf
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As noted earlier, Appendix 1 of the POP was established to provide potential targets for
a number of Livability Indicators, including several under the heading for Housing. There
is no numerical value provided for the Livability Indicator of “special needs housing
production as a percent of total production”.
Through the engagement for the Study, we heard:
• that there was concern regarding a need to consider accessibility and affordability
as separate issues to mitigate the segregation of communities;
• that the City should encourage developers to add accessible/universally designed
and constructed units to projects; and
• that the Province should require a minimum number, or a minimum percentage, of
accessible units for major residential development.
In response to the matter of considering accessibility and affordability as separate
issues, these are often highlighted as areas of study together because of the scarcity of
both. That does not mean that they are always linked. For example, you can have an
accessible dwelling that is not affordable and similarly, you can have an affordable
dwelling that is not accessible.
Given the forecast seniors population as a percentage of the total population in
Pickering in the next ten years, it would be worthwhile collecting data, and monitoring
the availability and provision of accessible housing. Part of this data collection and
monitoring could be enhanced by requiring the submission of an Accessibility Analysis
as part of a complete application for residential development, similar to the requirement
for the submission of an Affordability Anlaysis as discussed in subsection 4.1.5. The
content of an Accessibility Analysis, and the associated professional(s) deemed
qualified to complete the analysis, will be determined through the policy implementation
process.
The results of an Accessibility Anlaysis would provide the City with a basis for the
amount of accessible units that should be included in a residential proposal.
Proposed Action
Add an Official Plan policy requiring the submission of an Affordability and
Accessibility Analysis as part of a complete application for residential
development, subject to criteria.
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The Pickering Accessibility Advisory Committee expressed the desire to have the
Province establish a required minimum number of accessible units within a residential
development. This also reflects views expressed through the consultation undertaken
and documented in the 2019 Report of The Third Review of The Accessibility for
Ontarians With Disabilities Act, 2005 prepared by the Honourable David C. Onley13.
Through Onley’s work, some individuals felt that basic accessibility should be required
in all newly constructed housing and especially housing built with public funds.This
could include provision for future installation of elevators and other accessibility
features, as well as easy access to the main floor for visitability.
Currently the Ontario Building Code (OBC) requires that at least 15 per cent of suites in
multi-unit residential buildings be visitable. There is no similar OBC requirement for
single detached, semi-detached or townhouse dwelling units.
Should the City decide that there is merit in including a required minimum number of
accessible units in residential developments, the City could request that the Province
establish these minimum requirements.
Proposed Action
Consider advocating for the Province to establish a minimum number of
accessible units or a percentage of accessible units for major residential
development.
Through the engagement process, staff heard the suggestion that the City should
encourage developers to build accessible units as part of a project, and that these units
also be affordable.
Proposed Action
Encourage developers to plan for and build accessible or universally
designed units in projects.
13 Report of The Third Review of The Accessibility for Ontarians With Disabilities Act, 2005, The
Honourable David C. Onley; https://files.ontario.ca/seniors-accessibility-third-review-of-aoda-en-2019.pdf
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4.1.10 Remove or Reduce Minimum Parking Requirement
There are numerous factors and processes leading to the provision of affordable
housing. Through the engagement process staff heard that including the required
parking in a development proposal can sometimes make the project impossible. The
discussion included the comment that “It’s more affordable to do surface parking even if
the land value is higher. You could do underground parking, but it will impact the
affordability of housing units.”
The Transportation policies in the City’s official plan, encourage a well connected network
of corridors (roads, rails, sidewalks, trails and bikeways), designed as desirable places
to be, with Kingston Road as the City’s mainstreet. A variety of modes of travel are
accommodated, including driving, walking, cycling and using transit. The transportation
policies also promote optimization of the City’s transportation infrastructure by, among
other things, promoting ways to shift modes away from single occupancy vehicles and
supporting improved transit infrastructure and service. In addition, the POP (section 4.13)
establishes the opportunity for Council to consider the preparation of a comprehensive
parking strategy for the urban area to determine and provide recommendations on
current and future parking supply and demand, recognizing the opportunity to reduce
parking supply in areas well-served by public transit. Currently the City’s by-laws
establish parking standards to help manage the parking supply/demand needs of the
community.
The City Centre Neighbourhood policies in Chapter 12 of the POP address the potential
for a reduction in the number of required car parking spaces where bicycle parking
facilities or Transportation Demand Management (TDM) measures are provided and in
recognition of the proximity to high frequency transit. TDM is a suite of policies,
programs, services and initiatives that aim to reduce travel demand by single-occupant
vehicles by influencing how, how much, when, where, and why people travel. One of the
many potential outcomes of TDM is the reduced need for parking.
The City recently completed its Integrated Transportation Management Plan (ITMP)14
which provides recommendations related to parking management (section 6.3) and
TDM (section 6.2). The ITMP does not specifically address parking requirements for
affordable housing.
The policies within the City’s official plan encourage an increased focus on the
pedestrian experience and a diversification of travel modes away from single car trips,
which contemplates a possible reduction in the required provision of car parking spaces.
14 City Of Pickering Integrated Transportation Master Plan, August 2021, https://www.pickering.ca/en/city-
hall/resources/ENG/ITMP/Pickering-ITMP-Final-Report-2021-08-18.pdf
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It’s possible that a transition period will occur prior to achieving high-frequency public
transit, when the demand will exceed the provision for car parking spaces.
The City could consider removing or reducing the minimum requirement for parking
spaces and allowing developers to propose alternative parking space options for
affordable housing and/or supportive housing on a site-specific basis. The City may also
consider looking at other innovative approaches for reducing and optimizing parking for
housing, especially in areas with high frequency transit as was done in the City Centre.
Proposed Action
Consider removing or reducing the minimum requirement for parking
spaces for affordable housing and/or supportive housing and allowing
developers to propose alternative parking space options.
4.1.11 Down Zoning
When people talk about more housing density or more intense commercial or industrial
development, it usually means "up" in the sense of what the real estate industry calls
the highest and best use of land. Then, when density or intensity of land use is being
lowered, that's a decrease in how many housing units can be built or how intensely
non-residential land can be used. Professionals in the field of planning and development
refer to this as “down zoning”.
There are some jurisdictions in the United States that have prohibited down zoning
residential areas from higher to lower density zone classifications. The goal in prohibiting
down zoning is to address the need for affordable housing. Empirical evidence provides
that housing affordability is more often achieved in smaller dwelling units, such as
apartments and townhouses, as compared to single detached dwellings. Higher density
residential zone classifications enable more dwelling units to be built in the same amount
of land area as compared to medium- or low-density residential zone classifications.
Figure 1 below shows recent data from the Toronto Real Estate Board for Average
Resale Home Prices in Pickering for July 2021. Although Figure 1 does not address
affordability according to income, it shows that the average resale home price is lower
based on dwelling type associated with higher density housing.
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Figure 1: July 2021 Average Resale Home Price – Pickering
Source: Toronto Real Estate Board, Market Watch, July 2021
The POP establishes a land use strategy that provides for a compact urban area, and
large rural and open space areas. The land use strategy includes land use categories
and subcategories. The subcategories are distinguished primarily on the basis of the
level of intensity. The category of Mixed Use Areas are areas and corridors of
development having the highest concentration of activity in the City and the broadest
diversity of community services and facilities. Mixed Use Areas permit a wide variety of
uses including, among others, residential. Urban Residential Areas are to be used
primarily for housing and related uses, including home occupations and group homes.
Further, Urban Residential Areas are differentiated on the basis of net residential
density (the number of residential dwellings per net residential hectare). Low, medium
and high density areas are distinguished.
The Pickering Official Plan lays the foundation for building a good community. It
provides a vision for the City and identifies how the vision can be reached. The vision is
comprehensive, and strategies and tools provided in the POP are intended to assist the
City as it grows. In particular, as noted above, and through careful consideration for a
complete and thriving community, the POP establishes categories of land use and
subcategories based on intensity of land use. High and medium density residential
areas are generally more affordable and therefore warrant protection against “down
zoning”.
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To support the creation of more affordable housing units, the City could consider
discouraging “down zoning” high and medium density residential designations to lower
density residential designations.
Proposed Action
Consider discouraging “down zoning” high and medium density residential
designations to lower density residential designations.
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4.2 Financial Incentives
A municipality may direct funds and implement policy initiatives toward a specifically
defined project area through the adoption of a Community Improvement Plan (CIP).
Section 28 of the Planning Act gives municipalities that have enabling policies in their
official plans, the ability to prepare Community Improvement Plans (the City’s official
plan contains such policies). Community improvement, as defined in the Planning Act,
includes the provision of affordable housing. The financial incentives discussed in this
section, may be enabled through a CIP. The Region is currently undertaking an
investigation of a Regional CIP that could be used to support the delivery of affordable
housing.
4.2.1 Provide Land
The cost of land is often a significant contributor to the cost of the development of
affordable housing. Some municipalities have established corporate policy that supports
the production of affordable housing through a “housing first” policy for surplus
municipally-owned property. The principle of the housing first policy is that the first
priority in the decision-making process respecting surplus or potentially surplus City-
owned real property should be affordable housing development. If the City was to make
land available, it would be through an open request for proposals to ensure a fair and
transparent process.
A housing first policy would provide reduced, or no, land costs for developers of
affordable housing. The benefits of doing this are:
• efficient use of government-owned surplus land;
• relatively low investment for the City with the potential of high returns in terms of
affordable housing;
• provides the City with a direct influence in facilitating the supply of affordable
housing through public land;
• contributes to creating new mixed income communities;
• creates an opportunity for the net proceeds from the disposal of the surplus lands
for affordable housing purposes to be deposited into a municipal reserve fund for
affordable housing (i.e. a Housing Reserve Fund);
• creates an opportunity to share a City “surplus property list” with interested
affordable housing providers; and
• creates opportunities for ensuring appropriate affordable housing is available to an
employee base that serves the employers within the city.
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Some of the constraints associated with a “housing first” policy include:
• potential loss of revenue by selling (or donating) municipal surplus land at a lower
rate than the market could provide;
• surplus land may not be in ideal or appropriate locations for affordable housing (i.e
close to transit and amenities);
• other City departments may require the lands;
• other neighbourhood needs, such as parkland, may go unmet; and
• potential loss of permit fees, development charges, future property tax potential.
Proposed Action
Consider establishing a corporate policy whereby surplus or underutilized
City-owned lands or buildings that are not required for municipal purposes,
such as for parkland, are first considered for development of affordable
rental housing.
4.2.2 Waive Fees
Development costs including application (such as Site Plan Approval, Rezoning, Minor
Variance) and building permit fees, development charges, parkland dedication fees,
letters of credit, and post development increased property taxes, which all contribute to
a project’s financial burden. Reducing, waiving or deferring some or all of these fees
can mean the difference between the construction of a project or not.
The Region introduced a new residential development charge (DC) service category for
“Housing Services”, to support the creation of affordable rental and seniors’ housing.
Funds collected through the new DC category will be used to support the development
of new, growth-related social and government-assisted affordable housing
projects/units. DC revenue may fund capital costs for new housing development for:
• Community housing provided by the Durham Regional Local Housing Corporation
(DRLHC), or by a non-profit housing provider that receives ongoing subsidy from
the Region of Durham; and
• Affordable Housing that are rental units, provided by private or non-profit housing
providers that receive funding through a federal or provincial government
affordable housing program.
Eligible projects must be for new construction only, including additions and extensions
resulting in additional rental units, and are approved by Regional Council on a case-by-
case basis.
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Currently the Region can also provide direct financial assistance to development
projects that are within area municipal Community Improvement Plan areas through the
Regional Revitalization Program.
Tax Increment Financing (TIF) is an incentive mechanism that can be used to
encourage property development or redevelopment, usually within designated areas.
Tax increment financing is generally used to encourage development in situations
where, due to environmental conditions or other economic factors, development would
be unlikely to proceed in the absence of financial incentives.
Tax increment financing is a method of using future incremental property tax revenues
generated by the redevelopment of a property to offset the upfront costs of
redevelopment. In other words, as a property or area is redeveloped, the increase in the
assessed value of the property raises the amount of taxes payable by that property. The
difference between the taxes paid by the property prior to redevelopment and the taxes
paid following redevelopment is referred to as the “tax increment”. TIF is established
under the Community Improvement Plan provisions of the Planning Act.
The City could consider waiving fees or providing a grant equivalent to certain
development application fees, development charges, property taxes, and/or parkland
dedication requirements, for affordable rental, affordable ownership, and/or supportive
housing developments.
Proposed Action
Consider waiving fees or providing a grant equivalent to certain
development application fees, development charges, property taxes,
and/or parkland dedication requirements, for affordable rental, affordable
ownership, and/or supportive housing developments on a case-by-case
basis.
Education Development Charges (EDCs) are funds that school boards collect and
which can be spent to purchase land for future school sites. The regulations under the
Education Act establish that certain properties may be exempt from education
development charges. The City may consider advocating that the Province to amend
the EDC regulations to enable school boards to reduce, waive or defer their portion of
Development Charges for affordable rental housing.
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Proposed Action
Consider advocating for the school boards to reduce, waive and/or defer
their portion of Development Charges for affordable rental housing.
4.2.3 Prioritize and Facilitate Approvals
In “Fixing the Housing Affordability Crisis: Municipal Recommendations for Housing in
Ontario”15 (staff reviewed and reported on this document in Report PLN 05-20), the
Association of Municipalities of Ontario (AMO) highlights speed as an important factor in
bringing new housing supply to the market. The provincial government also addressed
timelines for the review of development applications in More Homes, More Choice Act,
2019 by shortening the amount of time a municipality can take to review and approve
development applications, plans of subdivision, by-law amendments and holding
provisions.
The City of Pickering has an established, efficient process to review development
applications while maintaining due diligence to safeguard the public interest, ensure
local standards are met, and to make sure that communities are designed using sound
planning principles. In addition, City staff facilitates coordination and communication
between internal departments and business owners and/or project proponents. City staff
endeavours to identify gaps in communication and comprehension between the City and
the proponent, in order to keep the approval process on track and assist in achieving
the most beneficial outcome for all parties. In many cases this has led to improved
results and timelines. In addition, the City does fast-track priority projects. Staff notes,
however, that timely responses from the development community on comments are
critical to the expected timeline. Furthermore, adequate municipal staffing levels are
also essential.
The benefit of an expedited approvals process is that it can reduce the cost of holding
undeveloped land, reduce development risk, and allow construction to begin sooner,
thus lowering financing costs to the developer.
To facilitate affordable rental, affordable ownership, supportive housing, and purpose-
built rental housing, the City could formally establish an initiative to prioritize the review
15 Fixing the Housing Affordability Crisis, Municipal Recommendations for Housing in Ontario, August 14,
2019,
https://www.amo.on.ca/sites/default/files/assets/DOCUMENTS/Reports/2019/FixingHousingAffordabilityC
risis20190814.pdf#:~:text=Fixing%20the%20Housing%20Affordability%20Crisis%20Municipal%20Recom
mendations%20for,the%20municipal%20order%20of%20government%20can%20achieve%20shared
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and approvals process. Projects such as Durham Region led housing developments,
not-for-profit sector affordable housing projects and private sector ownership or
purpose-built rental projects that qualify for federal and/or provincial funding, could be
targeted through this initiative.
Proposed Action
Prioritize and facilitate approvals for projects which provide affordable
rental, affordable ownership, supportive housing, and purpose-built rental
housing units.
4.2.4 Establish a Housing Reserve Fund
Municipalities can assist in providing funding for various affordable housing
developments and initiatives by establishing an affordable housing reserve fund
targeted to meet the housing needs of low income individuals or families determined to
be in core housing need. Several Ontario municipalities, such as Brampton, Cambridge,
Guelph and London have establish housing reserve funds with various objectives to
assist in the development and/or maintenance of existing or future affordable housing.
The implementation of a Community Benefits Charge16 could direct funds collected
through the planning application process to a reserve fund specifically for the
development of affordable housing. Alternatively, an annual contribution could be
directed to the housing reserve fund through a special levy as part of the annual budget
process. The reserve fund could provide grants on a per-unit basis to eligible non-profit
organizations or partnerships of non-profit organizations and the private sector to
leverage the development of more affordable rental housing options. The reserve fund
is intended to supplement or match funding from other levels of government,
businesses, private donors, or community groups.
To facilitate grants from an affordable housing reserve fund, eligible housing
developments would be evaluated based on criteria that fulfills the purpose and
objectives of the reserve fund. Selected proposals would be recommended to Council
16 Community Benefits Charges (CBCs) are intended to fund municipal infrastructure for community
services, such as land for parks, affordable housing and child care facilities, that are needed to support
new residents and businesses associated with new development. CBCs will work with development
charges and parkland dedication to ensure that municipalities have the tools and resources they need to
build complete communities (i.e. While CBCs will effectively replace Section 37 benefits, development
charges and parkland dedication, or cash in lieu of parkland dedication, will continue to remain separate
requirements). A municipality may not levy both a development charge and a CBC for the same service.
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for approval subject to the adoption of a funding agreement with the proponent to use
the contribution towards municipal fees or charges and for capital costs.
Proposed Action
Consider establishing a Housing Reserve Fund which can be funded
through a special levy and/or a Community Benefit Charge .
4.2.5 Vacant Home Tax
In 2017, Bill 127 – Stronger, Healthier Ontario Act (Budget Measures) implemented the
2017 Ontario Budget measures, including the Fair Housing Plan which empowers
interested municipalities to introduce a vacant hoe property tax. A vacant home tax is a
policy tool to address the housing disparities between the lack of rental housing and
readily available unoccupied homes, by encouraging the release of units that are being
held vacant into units that are occupied. Residential units that are available and capable
of being occupied but the owner has decided to maintain vacant and unavailable for
occupation is an indication of housing stock and supply that is important to people in
need of housing, and not as a buy-hold speculative commodity which is not currently
regulated. In recent years municipalities, especially in large urban centres, have
increasingly shown interest in implementing a vacant home tax. Municipalities such as
the City of Vancouver implemented the tax in 2017, whereas the City of Toronto will be
implementing the tax in 2022, and the City of Ottawa has recently initiated a feasibility
study to potentially introduce the tax.
A vacant home tax could potentially create more rental homes if the desired effect of the
tax incentivizes homeowners to occupy their homes by a permitted occupier or tenant in
order to avoid incurring the tax. For example, the City of Vancouver reported a 25%
reduction in the number of vacant properties recorded from 2017 to 2019, including a
41% conversion rate of vacant properties to occupied status in 2019.17 A secondary
outcome is that the tax could also provide a revenue stream to the City that could fund
additional affordable housing initiatives. According to Vancouver’s Empty Home Tax
Annual Report, since launching the tax, $61.3 million of revenue has been generated to
support local affordable housing initiatives.18
The vacant home tax could apply only to residential units that are not the homeowner’s
principal residence, or occupied by a permitted occupier or tenant, and chosen to
17 City of Vancouver; https://vancouver.ca/news-calendar/empty-homes-tax-enters-fourth-year-with-25-
per-cent-fewer-vacant-properties-since-launch.aspx
18 Ibid.
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purposely be maintained as vacant and unavailable for occupation. A homeowner may
be compelled to convert an unoccupied unit led by the determined tax rate that
optimizes a cost high enough for a homeowner to choose to either sell or rent the
residential unit, while not creating an undue burden on owners who have to pay the tax,
or increase the likelihood of unintended non-compliance with the tax. The City of
Vancouver has implemented a 3% tax rate, whereas the City of Toronto is proposing to
implement a 1% tax based on the property’s assessment value of the year in which the
home is declared vacant. Exemptions to the tax could be applied to non-principal
residences, such as properties undergoing redevelopment or major renovation, the
owner is undergoing medical care, or the ownership of the property is transferred during
the tax year. To facilitate a vacant home tax program the City would undertake a
feasibility study, beginning with a determination of the number and percentage of vacant
homes within the city, and whether or not there is merit in establishing the administrative
structure, system, and programming to collect the tax as well as on-going public
communication efforts and costs to ensure compliance.
Proposed Action
Consider undertaking a feasibility study for Vacant Home Tax.
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4.3 Other Actions to Support Affordable Housing
It can sometimes be overwhelming to those not familiar with affordable housing and/or
the development process in general, to navigate the various municipal and provincial
requirements to provide affordable housing, and in particular affordable primary rental
accommodation. For example, the City has a requirement that a “complete application”
must be submitted prior to undertaking the development review process. Also, there
may be developers willing to develop and construct rental housing, however, not being
in the business of operating rental housing, these developers would need a partner,
once the project is constructed, to continue in the role of operating the rental housing.
The City facilitates coordination and communication between internal departments and
business owners and/or project proponents. City staff endeavours to influence the
proponent experience with the City to be seamless and efficient for all parties involved.
In many cases this has led to improved results and timelines. The City could consider
connecting interested developers with experts or consultants in the field of management
and operation of affordable, rental housing.
Proposed Action
Consider connecting interested developers with experts or consultants in
the field of management and operation of affordable, rental housing.
The City has professional staff who are experts in planning, development and building.
As noted in subsection 4.2.3, the City staff facilitates coordination and communication
between internal departments and business owners and/or project proponents. Offering
guidance to affordable housing project proponents, on the planning and building
approvals processes, is an action that the City has already undertaken, albeit to a more
general audience.
Proposed Action
Provide guidance to developers, not-for-profits and other proponents of
affordable rental, affordable ownership and/or supportive housing, on the
planning and building approvals processes.
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The Region, Province and Federal governments have certain funding opportunities
available for providing affordable primary rental accommodation. The various programs,
requirements, milestones and deadlines, vary from program to program. All of this
information is specialized and can be unknown or confusing to a developer unfamiliar
with providing affordable rental housing. The Region, through its Housing Services
Division, manages, plans and administers the community housing system, develops
affordable housing stock and delivers homelessness prevention programs. In the
Region’s role of Service System Manager, the Region works in partnership with co-
operative and non-profit community housing providers. The City, through regular and
continued communication with the appropriate parties at the Region, can remain
abreast of funding opportunities and rental housing providers and operators, in order to
be able to share this information with interested developers.
Proposed Action
Share information with developers about funding and other incentives
available to address the City’s housing needs.
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4.4 Monitoring Progress
The Research and Gap Analysis Report, March 31, 2021, established a baseline data
set related to the status of housing in Pickering. In order to appropriately address
affordable housing within the city, housing stock (ownership and rental), type and mix,
stock by type across income deciles, density, and the matter of affordable housing
targets, active monitoring of these data sets must be undertaken. Part of implementing
a housing monitoring plan in the city will be to actively engage with the Region and
utilize the results of their Assessment Report, as well as requiring the submission of an
Affordability and Accessibility Analysis as part of a complete application for residential
or mixed-use development proposals (discussed in subsections 4.1.5 and 4.1.9). The
goal of a housing monitoring plan is to identify whether or not the goals and objectives
of the Housing Strategy are being met, and if any modifications to the Action Plan are
necessary.
Proposed Action
Establish a Monitoring Plan that will annually update and review the
baseline data set established in the Research and Gap Analysis Report,
March 31, 2021, to ensure goals and objectives of the Housing Strategy
are being met.
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5.0 Recommended Action Plan
The Recommended Action Plan is shown in the table below. It contains minor textual
changes from the draft presented in the Phase 2: Draft Housing Strategy & Action Plan.
Each action is categorized according to the following themes: policy, financial
incentives, and other. A timeframe and estimated cost of implementation has been
identified for each action and is shown in the table below. In addition, the table identifies
the gap from the Phase 1: Research and Gap Aalysis Report, March 31, 2021, that the
action addresses and the City department proposed to lead the initiative.
The following provides information on each of the gaps identified in the Phase 1 Report:
• Gap 1 relates to the need for housing options for:
• Low and moderate income earners;
• Rental and ownership housing;
• Range of unit sizes; and
• Accessible units;
• Gap 2 relates to the need for:
• Primary rental market units of all sizes
• Protection of units in the primary rental market;
• Accessible units in the primary rental market;
• Gap 3 relates to the need for:
• Home ownership housing options for moderate income earners;
• Range of unit sizes; and
• Accessible units;
• Gap 4 are policy gaps related to housing in the City’s Official Plan that are the
result of new or recent changes to provincial legislation.
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Timeframe
Short-term
■□□
1-5 years
Medium-term
□■□
5 -10 years
Long-term
□□■
10 or more years
Action Gap #
Addressed Lead Department Time
Frame Cost
1.0 Policy
1.1 Add a definition of “affordable
housing” to the City’s Official Plan
which includes reference to the
average purchase price and
average market rent in accordance
with the definition in the Provincial
Policy Statement, 2020.
Gap 4 City Development ■□□ $
1.2 Add a definition of “Housing
Options” to the City’s Official Plan.
Gap 4 City Development ■□□ $
1.3 Amend the City’s Official Plan to
reflect the Provincial Policy
Statement 2020 requirement for
the municipality to maintain the
ability to accommodate residential
growth for a minimum of 15 years
(as opposed to 10 years as
currently written).
Gap 4 City Development ■□□ $
Cost Estimate
Low
$
Under $10,000
Medium
$$
$10,000 - $25,000
High
$$$
Over $25,000
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Action Gap #
Addressed Lead Department Time
Frame Cost
1.4 Consider amending the City’s
Official Plan to reflect the
Provincial Policy Statement 2020
option to increase from 3 to 5
years the minimum number of
years to accommodate a short-
term supply of residential lands,
subject to the outcome of Durham
Region’s Envision Durham
exercise.
Gap 4 City Development ■□□ $
1.5 Add new official plan policy to
protect existing rental housing
stock from conversion.
Gap 4 City Development ■□□ $
1.6 Add new Official Plan policy which
prohibits the demolition of existing
rental housing units unless the
proposed redevelopment meets
specified conditions.
Gap 4 City Development ■□□ $
1.7 Consider adding new Official Plan
polices to implement “inclusionary
zoning” in Major Transit Station
Areas, following Durham Region’s
completion of the “Assessment
Report”.
Gap 4 City Development ■■□ $
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Action Gap #
Addressed Lead Department Time
Frame Cost
1.8 Additional Dwelling Units:
(a) Review and update the City
zoning by-laws and Two-
Dwelling Unit By-law to reflect
the More Homes, More Choice
Act changes to permit
Additional Dwelling Units in a
detached, semi-detached or
townhouse as well as in a
building or structure ancillary
to a detached house, semi-
detached or townhouse.
(b) Consider allowing Additional
Dwelling Units in rural areas
subject to the capacity of well
and septic systems.
(c) Consider reducing or removing
the City’s parking requirement
for Additional Dwelling Units
located in areas well served by
transit.
(d) Examine other existing zoning
requirements that may present
barriers to increasing
Additional Dwelling Units
within the City.
Gaps 2, 4 City
Development,
Corporate
Services
(Municipal Law
Enforcement)
■■□ $
1.9 Ensure that the City’s Official Plan
policies and zoning regulations do
not present barriers to shared
living (co-housing, co-living)
arrangements in appropriate areas
as-of-right.
Gaps 1-3 City Development ■□□ $
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Action Gap #
Addressed Lead Department Time
Frame Cost
1.10 Consider removing or reducing the
minimum requirement for parking
spaces for affordable housing
and/or supportive housing and
allowing developers to propose
alternative parking space options.
Gap 4 City Development ■□□ $
1.11 Consider discouraging “down
zoning” high and medium density
residential designations to lower
density residential designations.
Gap 4 City Development ■□□ $
1.12 Add an Official Plan policy
requiring the submission of an
Affordability and Accessibility
Analysis as part of a complete
application for residential
development, subject to criteria.
Gaps 1-3 City Development ■□□ $
2.0 Financial Incentives
2.1 Consider establishing a corporate
policy whereby surplus or
underutilized City-owned lands or
buildings that are not required for
municipal purposes, such as for
parkland, are first considered for
development of affordable rental
housing.
Gaps 1-3 Corporate
Services, Finance
■■□ $$ -
$$$
2.2 Consider waiving fees or providing
a grant equivalent to certain
development application fees,
development charges, property
taxes, and/or parkland dedication
requirements, for affordable rental,
affordable ownership, and/or
supportive housing developments
on a case-by-case basis.
Gaps 1-3 Finance
Department
□■□ $$ -
$$$
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Action Gap #
Addressed Lead Department Time
Frame Cost
2.3 Prioritize and facilitate approvals
for projects which provide
affordable rental, affordable
ownership, supportive housing,
and purpose-built rental housing
units.
Gaps 1-3 City
Development,
Engineering, Fire
■□□ $
2.4 Consider establishing a Housing
Reserve Fund which can be
funded through a special level
and/or Community Benefit Charge.
Gaps 1-3 Finance □■■ $
2.5 Consider undertaking a feasibility
study for a Vacant Home Tax.
Gaps 1-3 Finance □■□ $
3.0 Other
3.1 Encourage developers to consider
designing flexible spaces that can
accommodate shared living or
multi-generational living.
Gaps 1, 3 City Development ■□□ $
3.2 Consider connecting interested
developers with experts or
consultants in the field of
management and operation of
affordable, rental housing.
Gaps 2 Economic
Development,
City Development
■□□ $
3.3 Provide guidance to developers,
not-for-profits and other
proponents of affordable rental,
affordable ownership and/or
supportive housing, on the
planning and building approvals
processes.
Gaps 1-3 City Development ■□□ $
3.4 Share information with developers
about funding and other incentives
available to address the City’s
housing needs.
Gaps 1-3 City Development ■□□ $
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Action Gap #
Addressed Lead Department Time
Frame Cost
3.5 Consider advocating for the
Province to establish a minimum
number of accessible units or a
percentage of accessible units for
major residential development.
Gaps 1-3 Corporate
Communications
■□□ $
3.6 Consider advocating for the school
boards to reduce, waive and/or
defer their portion of Development
Charges for affordable rental
housing.
Gaps 1, 2 Corporate
Communications
■□□ $
3.7 Establish a Monitoring Plan that
will annually update and review the
baseline data set established in
the Research and Gap Analysis
Report, March 31, 2021, to ensure
goals and objectives of the
Housing Strategy are being met.
Gaps 1-4 City Development ■□□ $
“The Action Plan consists of
themed actions – policy,
financial incentives, and
other.”
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6.0 Next Steps
Should Council decide to endorse the Phase 3: Recommended Housing Strategy &
Action Plan, December 22, 2021, it is recommended that the appropriate officials of the
City of Pickering be authorized to take the necessary actions as indicated in the Phase
3: Recommended Housing Strategy & Action Plan 2021-2031, December 22, 2021.
“Cities have the capacity of
providing something for
everybody, only because, and
only when, they are created by
everybody.”
Jane Jacobs
pickering.ca
Housing Strategy Study
Housing Strategy & Action Plan
Appendix 1
January 21, 2021 Electronic Open House 1:
Comments/Questions and Staff Response
Housing Strategy Study
January 21, 2021 Electronic Public Open House 1
Summary of Comments/Questions and Staff Responses
Item
Number Comments/Questions Staff Response
1. We would like to own a home. Rent-to-own/lease-
to-own options would be great to include as part of
the Study. These housing options would be great to
have locations near transit, shops, other amenities.
The Housing Strategy Study will be looking at how the City can
facilitate a variety of options for housing type and tenure,
including rent-to-own/lease-to-own options. City staff will be
hosting stakeholder meetings with the development and
building industry, as well as not-for-profit and government
agencies, to hear what they have to say about the provision for
this, and other housing options.
2. Why does Pickering not have more senior housing
similar to Amica Swan Lake in Markham, Eastern
Gate and Northern Gate Retirement Community in
Stouffville, or Wilmont Creek Retirement
Community in Newcastle?
Amica Swan Lake in Markham is a seniors’ living complex
(3-4 storey building, wide range of amenities). Eastern Gate &
Norther Gate are attached bungalows using a form of life-lease
(e.g., right-to-occupy agreement). Wilmont Creek in Newcastle
are bungalows, residents do not own them but lease the land
on which the bungalows sit. These examples provide a variety
of ownership styles and tenures. In addition to City policy,
market conditions and fluctuations drive what type of housing
can be made available. The City encourages the widest range
of typologies. Through the Study, we will identify additional
role(s) the City can take in providing a range of housing
typologies.
Viva Retirement Home provides independent and assisted
living opportunities for seniors in Pickering and is located at
Kingston Road and Glengrove Road.
Amica Pickering is a seniors lifestyle building currently under
construction at the northeast corner of Glenanna Road and
Pickering Parkway. In addition, City staff is reviewing a seniors
residence application from Chartwell proposed to be located at
Kingston Road and Valley Farm Road.
Housing Strategy Study
January 21, 2021 Electronic Public Open House 1
Summary of Comments/Questions and Staff Responses
Item
Number Comments/Questions Staff Response
3. What is Pickering’s plan for senior development
including detached bungalows with garages?
Pickering’s land value has dramatically increased in the last
few years and this has impacted whether this option would be
affordable for seniors downsizing.
City staff will be hosting stakeholder meetings with the
development and building industry, as well as not-for-profit and
government agencies, to hear what they have to say about the
provision for this, and other, housing options.
4. The current cost of housing in Pickering does not
offer affordable options for a variety of residents
ranging from Registered Nurses to individuals on
Ontario Works (OW) or Ontario Disability Support
Program (ODSP). Because of this, some people
require shared living quarters with others or they will
face potential homelessness. Many tenants in this
form of housing are considered vulnerable
populations (e.g., essential workers, seniors, co-op
students, individuals living with a disability,
racialized individuals). Surrounding municipalities
have made rooming/lodging house licenses difficult
and seem to be discouraging them. This can lead to
increased levels of homelessness. I do not want
Pickering to discourage this type of housing.
Discouraging this type of housing violates
guidelines set out by the Ontario Human Rights
Commission (Room for everyone: Human rights and
rental housing licensing). This Study should look
into encouraging rooming/lodging house licenses
and basement units as it provides essential
affordable housing options.
The City of Pickering Official Plan policies encourage the
provision of a wide variety of housing types and tenure to meet
the needs of existing and future populations of the City,
including shared living accommodation.
As with the construction of all types of housing, shared
accommodation must meet the requirements of the Ontario
Building Code (OBC) for building and fire safety. Other
concerns that arise with shared accommodation include the
amount of parking provided.
The City does not prohibit people from sharing housing
accommodation, and there is no zoning by-law prohibition on
rooming/lodging houses in Pickering.
Housing Strategy Study
January 21, 2021 Electronic Public Open House 1
Summary of Comments/Questions and Staff Responses
Item
Number Comments/Questions Staff Response
5. When looking at new affordable housing, the City
should ensure that “corners do not get cut” during
construction that could result in substandard
housing.
All construction is required to meet the Ontario Building Code
(OBC). The City of Pickering Building Services staff review
plans and inspect construction to ensure that the OBC
requirements are met. There are no reductions in performance
standards for affordable housing construction within the OBC.
6. The Province enables municipalities, like Pickering,
to mandate affordable housing through Inclusionary
Zoning policies and zoning by-laws. I encourage the
City to implement this.
Inclusionary Zoning is a relatively new “tool” introduced by the
Province to enable municipalities to require a certain amount
of affordable housing as part of new developments. Through
the Housing Strategy Study, the City will be examining how
this tool can be implemented, and the merits to its
implementation.
7. Will the Study be looking at transitional housing? Canada Mortgage and Housing Corporation’s National
Housing Strategy Glossary of Terms defines “Transitional
Housing” as housing that is intended to offer a supportive living
environment for its residents, including offering them the
experience, tools, knowledge and opportunities for social and
skill development to become more independent. It is
considered an intermediate step between emergency
shelter and supportive housing, and has limits on how long
an individual or family can stay. Stays are typically between
3 months and 3 years.
The Study will also be considering Transitional Housing.
Housing Strategy Study
January 21, 2021 Electronic Public Open House 1
Summary of Comments/Questions and Staff Responses
Item
Number Comments/Questions Staff Response
8. We are part of the aging population of Pickering.
We own our home and we would love to get old in
it. It seems that property taxes are a big part of the
housing cost. They increased 60 percent in the last
15 years and it seems that the trend is growing. At
this rate ever increasing taxes are eroding house
affordability. When the minimum wage is 15-16
CAD and old age security is around 1,000 how do
you see retirees afford the property bill on their
home?
The concern over increased property taxes and its impact on
housing affordability will be reviewed in consultation with the
City’s Finance Department, through the subsequent phases of
the study.
9. We need to see more broad housing types also with
other types of development. Such as mixed-use
development. For example a site that contains not
only owned units but also affordable housing and
rental units alongside commercial/retail space all
built together on the same site. So I would like the
City to look more at encouraging mixed-use
development moving forward in the housing
strategy.
The City, through the Study, will examine opportunities to
strengthen and expand its housing policies and zoning by-law
provisions to facilitate more housing types and affordable
housing as part of mixed-use developments.
10. There are a lot of working class people who are not
able to purchase a home. Is there a plan for any
new co-op housing to be built to reduce the number
of people on current waiting lists [for subsidized
housing]?
Currently there are no development applications for co-op
housing in Pickering. This Study will examine different types of
housing and how the City can help to facilitate affordable
housing including co-op housing.
11. What are Pickering’s policies with respect to
basement apartments?
Currently the City of Pickering’s zoning by-laws refer to
basement apartments as Accessory Dwelling Units (ADUs)
and permit a total of two residential units on one property,
subject to meeting certain conditions.
Housing Strategy Study
January 21, 2021 Electronic Public Open House 1
Summary of Comments/Questions and Staff Responses
Item
Number Comments/Questions Staff Response
These conditions include that the property have a minimum of
3 parking spaces, the ADU occupy no more than 100 square
metres, and that a home-based business is prohibited in either
dwelling unit of a dwelling containing an accessory dwelling
unit.
ADUs in the City of Pickering are governed by the Two-Dwelling
Unit By-law No. 7579/17 and must be registered in order to
ensure that the two-dwelling unit property meets required
safety standards and can be located for providing emergency
response.
Changes to the Planning Act, introduced through the More
Homes, More Choice Act in 2019, permit a total of three
residential units on one property. Some of the changes
introduced include:
• requiring municipalities to permit second units in
detached, semi-detached, and row houses in primary
dwellings and within ancillary buildings or structures;
• prohibiting municipalities from applying a development
charge for second units above garages or in laneways,
or built in new homes (subject to restrictions); and
• requiring municipalities to permit two units in either the
primary dwelling unit or in any ancillary building,
effectively allowing up to three residential units on a
single lot.
The Housing Strategy Study will review the new provincial
requirements and how they impact existing policy and
regulations.
pickering.ca
Housing Strategy Study
Housing Strategy & Action Plan
Appendix 2
February 25, 2021 Stakeholder Meeting:
Comments/Questions
February 25, 2021 Stakeholder Meeting
Comments/Questions
The following highlights some of the comments and questions discussed at the
February 25, 2021 Stakeholder Meeting:
• It’s important to clearly define what is “affordable housing”;
• The City should consider a robust suite of incentives to encourage the construction
of affordable housing, including deferring Development Charges, and/or tax breaks;
• An option to consider is encouraging affordable units through smaller and secondary
units;
• Consider reduced parking requirements for developments that include affordable
housing;
• Inclusionary Zoning should be targeted to areas of the City that have a strong
housing market, it should be financially viable, it should be focused in Major Transit
Station Areas (MTSAs), there should be continued consultation with BILD on this
matter;
• Consideration should be given to “Laneway Housing”;
• Consideration should be made for providing tax breaks (there is a potential tax
increase associated with converting or renovating basements to a secondary suite)
and an easier building/permit process for secondary suites;
• Pickering should look at innovative ways for people to renovate their homes to
provide accessible housing options;
• One of the challenges of affordable housing and purpose-built rental housing is
public opposition to these projects. There needs to be a unified front (City and
developer) and education to challenge the stigma associated with these forms of
housing. Affordable housing requires support and endorsement from Council to
educate the community and counter opposition;
• Demolishing rental housing stock will exacerbate the problem of affordability.
Consider balancing the impacts of redeveloping rental properties with providing
additional housing units, including replacing the existing rental units and adding
affordable units;
• There is support for the provision of a range of housing options, including
Emergency Shelters and Transitional Housing;
• Consider an Empty Home Tax, where owners of vacant homes are charged a one
percent (1%) tax on the assessed value of the home;
• There is support for the City to consider regulating short-term rental housing. A
distinction should be made between renting a room and renting an entire dwelling
unit, since the latter could lead to a decline in the supply of rental housing;
February 25, 2021 Stakeholder Meeting
Comments/Questions
• Consider expediting site plan approval to encourage modular and mid-rise
developments. As it relates to the cost of parking, surface or underground,
depending on the value of the land, it may be more affordable to implement surface
parking for mid-rise housing;
• The City should consider small, self-contained units to be built in backyards (“granny
flats”) where space permits. This can be considered as part of the “missing middle”
and is suitable for seniors looking to downsize but not wanting to be in an apartment
building;
• Affordable housing will only be possible with funding, grants, and incentives from all
levels of government;
• Encourage integrated and inclusive housing options, especially as it relates to
equity-seeking populations. We don’t want to see segregated buildings designated
for vulnerable populations, isolated from neighbourhood amenities;
• Encourage opportunities for the Region to increase the number of portable housing
benefits for individuals with disabilities or on fixed incomes;
• Make low-cost renovation dollars available to families who wish to modify their
existing home to include a secondary suite for a family member;
• Ensure homeowners are not penalized with increased property taxes when they
renovate and create secondary suites for a family member with a disability;
• Support or approve only the most inclusive and vibrant housing developments,
where only up to ten percent of the total units of any new build would be considered
for vulnerable people, including those with disabilities, so that disability “ghettos” do
not become the norm.
pickering.ca
Housing Strategy Study
Housing Strategy & Action Plan
Appendix 3
Engagement Summary Report
City of Pickering
Housing Strategy Study
Engagement Summary Report
July 2021
1
INTRODUCTION
The City of Pickering (the “City”) is currently undertaking a
Housing Strategy Study (the “Study”). The Study will ultimately
provide a framework to ensure the City can support a supply
of suitable, adequate and affordable housing for all ages and
abilities within its jurisdiction.
The Study has a total of nine objectives:
1 Identify housing priorities, policy alternatives, including
recommendations for official plan policies and zoning
regulations, and allocation of City resources;
2 Develop a baseline database of the City’s demographic
profile, socio-economic characteristics of households and
housing stock;
3 Develop a protocol for regular updating of the database;
4 Identify expected population and employment growth over
the next ten years that will influence future housing needs;
5 Analyze the data and trends to identify the City’s housing
needs and gaps;
6 Identify and examine the current policy and legislative
context that influences the provision of housing, affordable
housing and age friendly housing in the City;
7 Identify and examine the roles, responsibilities, and
interrelationships between the City, the Regional
Municipality of Durham and other levels of government,
and the private and not-for-profit sector;
8 Recommend an action plan that identifies actions that the
City may undertake to ensure an appropriate balance of
housing types and tenure that meet the needs of a
complete, prosperous community; and
9 Recommend a Monitoring Plan that will regularly update
and review the baseline data set with the goal of identifying
whether or not the goals and objectives of the Housing
Strategy are being met, and if any modifications to the
action plan are necessary to ensure that the goals and
objectives of the Housing Strategy are met.
The Study is being completed in three phases. Phase 1:
Research and Gap Analysis, included launching the Study,
undertaking background research to determine housing gaps
within the City, and public engagement. Phase 1 concluded
with the Research and Gap Analysis Report.
Phase 2: Draft Housing Strategy and Action Plan considered
input received through Phase 1 engagement, and the
preparation and circulation of the Draft Housing Strategy and
Action Plan to stakeholders, agencies and the public.
The Study will conclude with Phase 3, where the
Recommended Housing Strategy and Action Plan will be
2
presented to Planning & Development Committee for
consideration for Council adoption.
The Study is currently in Phase 2.
PURPOSE
The purpose of the Engagement Summary Report
(“Summary”) is to provide an overview of the initiatives
undertaken and a summary of the input received from the
public and key stakeholders during Phases 1 and 2 of the
Study. The Summary will conclude by highlighting key themes
that were identified through engagement. These themes may
be considered by the City as it enters Phase 3 of the Study
and prepares the Recommended Housing Strategy and Action
Plan.
OBJECTIVES
The engagement objectives for Phases 1 and 2 were to:
• Introduce the public, stakeholders and agencies to the
Study, including the background, purpose, objectives,
work plan and study timeline;
• Create an opportunity for communication and
education between the public, stakeholders, agencies
and City staff about the role of housing within the City
and the significance of the Study given the current
housing context within Pickering;
• Receive input and feedback from a broad audience of
interested members of the public, key stakeholders and
relevant agencies, as well as City departments and
committees, such as the Accessibility Advisory
Committee; and
• Identify key themes and inputs as they relate to housing
needs, challenges and opportunities within the City that
may be taken into consideration as the Recommended
Housing Strategy and Action Plan is developed.
PROJECT TEAM
The City’s Project Team for this Study included the following
staff members:
• Margaret Kish, Principal Planner, Policy, the Study’s
Project Manager;
• Catherine Rose, Chief Planner;
• Déan Jacobs, Manager, Policy & Geomatics; and
• Doris Ho, Planner 1.
TIMELINE OVERVIEW
2
3
THE LAUNCH OF THE STUDY
In June 2020 Council authorized staff to undertake a study for
the purpose of developing a housing strategy.
In Summer 2020, City staff began the research and data
collection that would inform the Research and Gap Analysis
Report of Phase 1 of the Study. City staff formally launched
the Study’s engagement process in Winter 2021 and held the
first Public Open House on January 21, 2021.
ESTABLISHMENT OF THE PROJECT TEAM
In January 2021, the City retained WSP to facilitate
consultation and engagement for the Study. As part of this
role, WSP has been responsible for facilitating stakeholder
meetings and public open houses, as well as providing
engagement summaries during Phases 1 and 2 of the Study.
PHASE 1 ENGAGEMENT
During Phase 1 of the Study, the following engagement events
were held to gather valuable feedback from members of the
public, agencies and key stakeholders:
1 Public Open House #1, held on January 21, 2021;
2 Stakeholders Meeting, held on February 25, 2021; and
3 Presentation to the Pickering Accessibility Advisory
Committee on March 17, 2021.
PHASE 2 ENGAGEMENT
During Phase 2 of the Study, the following engagement events
were held to gather valuable feedback from members of the
public, agencies and key stakeholders:
1 Public Open House #2, held on April 29, 2021; and
2 Presentation to the Pickering Accessibility Advisory
Committee on May 19, 2021.
Circulation of the Draft Housing Strategy and Action Plan to
internal departments, agencies and interested stakeholders is
also being undertaken in Phase 2.
COMMUNICATIONS AND ENGAGEMENT
TACTICS
The following section provides an overview of the approach
and methodology used and an analysis of feedback received.
DEDICATED PROJECT WEBPAGE
The City is administering a dedicated project webpage that
offers a central location for project resources. The project
webpage details the Study background, key objectives, status,
reports, engagement activities, and information on how to be
involved. Members of the public could also sign-up to receive
email notifications and a dedicated email address was also
administered to receive correspondence.
4
PUBLIC OPEN HOUSE #1
The first electronic Public Open House was held on January
21, 2021, from 7:00PM to 8:30PM. The Public Open House
was held on the Cisco Webex platform and live streamed to
the City’s YouTube channel. The event was advertised
through the project webpage and a Notice of Electronic Public
Open House The Public Open House required pre-registration
in order for members of the public to be connected to the
meeting and actively participate. Alternatively, the Public
Open House could be viewed live through the City’s YouTube
channel, where no pre-registration was required. A total of 24
members of the public viewed the Public Open House on
YouTube.
The purpose of Public Open House #1 was to introduce the
Study to the public, provide context on why the Study was
being undertaken, and to provide an opportunity to gather
feedback to inform the Research and Gap Analysis Report.
The Public Open House also provided an opportunity for pre-
registered participants to interact directly with the City’s project
team by asking questions and providing feedback.
The Public Open House was facilitated by WSP with members
of the City’s project team in attendance. The City’s project
manager, Margaret Kish, delivered a PowerPoint presentation
providing the Study context and purpose of the Public Open
House. Following the presentation, delegations from pre-
registered participants were delivered to the City, with follow-
up questions being directed to the City’s project team.
Delegates at the meeting included the following individuals:
• Editha & Rolando de Guzman;
• Royce Baker;
• John Armstrong;
• Councillor Brenner; and
• Councillor Butt.
The Public Open House concluded with an open discussion,
followed by a review of the Study’s next steps delivered by the
City’s project manager. Comments were received by the
project team subsequent to Public Open House #1 until
January 20, 2021. Several comments were received during
this period and documented as part of the Study’s record.
STAKEHOLDER MEETING
A stakeholder meeting was held electronically on February 25,
2021, from 2:30PM to 4:30PM. The meeting was held on the
GoToMeeting platform. Participants were also pre-registered
for this event, and included representatives from the
development industry, consultants, agencies, and relevant
organizations. A total of 19 participants attended the meeting.
5
The purpose of the Meeting was to engage key stakehol ders
and provide an opportunity to receive solution -oriented
feedback from a range of relevant perspectives and interests
in affordable housing within the City.
The format of the Stakeholder Meeting included a total of nine
questions that were posed to participants by the project team.
The meeting was facilitated by WSP with members of the
City’s project team in attendance to engage with attendees
and answer questions. The nine questions were developed
within the context of the Research and Gap Analysis Report
(the Report). The questions largely focused on exploring the
various issues and opportunities that were identified through
the Report, including:
1 How the City may facilitate affordable housing, purpose-
built rental housing and community housing;
2 Challenges to the supply, construction and access of
affordable rental housing and affordable home ownership;
3 The protection of rental housing from conversion and/or
demolition;
4 Solutions to create emergency shelters or transitional
housing;
5 Whether short-term rental housing within the City should
be regulated;
6 Incentives and tools to facilitate or support affordable
housing;
7 What could be done to encourage more mid-rise (6-8
storey) buildings; and
8 What can be done to encourage more at-grade bungalow
dwellings.
The Meeting concluded with a review of next steps, provided
by Margaret Kish. Follow-up comments from participants of
the Meeting were accepted until midnight on March 10th, 2021.
Several comments were received and documented by the
City’s project team.
PICKERING ACCESSIBILITY ADVISORY COMMITTEE
DELEGATION #1
On March 17, 2021, Margaret Kish attended an electronic
meeting of the Pickering Accessibility Advisory Committee
(AAC) as a delegate. The AAC was provided an overview of
the Study, including the background, purpose, objectives, and
work plan. More specifically, the housing continuum was
presented and the definition of “affordable” was explained.
The roles of Federal, Provincial and Regional governments in
housing was also explored. The delegation was concluded
with confirming preliminary findings to date and the next steps
of the Study.
6
Several comments were offered by the AAC or those in
attendance, as follows:
• A former member of the AAC, who joined via audio
connection, confirmed that comments had been issued
to Margaret Kish via email. Concern regarding the
inaccessibility of stacked housing was also noted.
• A member of the AAC noted that site plans presented
to the Committee often have limited consideration for
accessibility. It was also noted by this individual that it
is important to ensure a mix of housing options is
available for the aging population.
• There was concern regarding a need to consider
accessibility and affordability as separate issues to
mitigate the segregation of communities;
• Observations were offered that the senior population is
relocating outside of Pickering due to the lack of
affordable and accessible housing;
• It was suggested that the City explore the concept of
“prefabricated” housing for members of the community
who may require affordable housing;
• A need to ensure that specific goals and objectives are
established through the Study;
• Ensuring that the AAC are circulated as stakeholders
throughout the Study;
• That other factors be considered through the Study,
including proximity to everyday amenities;
• That consideration be given to horizon greater than 10
years;
• That opportunities be considered to address
deficiencies with respect to the Ontario Building Code
be explored;
• Opportunities to implement and enforce the
Accessibility for Ontario with Disabilities Act (AODA) be
considered; and
• The AAC encouraged the Study’s project team to reach
out to the Ajax-Pickering Board of Trade.
PUBLIC OPEN HOUSE #2
The second electronic Public Open House was held on April
29, 2021, from 7:00PM to 8:30PM, as part of Phase 2 of the
Study. The second Public Open House was held on the Cisco
Webex platform and live streamed to the City’s YouTube
channel. The event was also advertised through the project
webpage and a Notice of Electronic Public Open House. The
Public Open House required pre-registration in order for
7
members of the public to be connected to the Open House
meeting and actively participate. Alternatively, the Public
Open House could be viewed live through the City’s YouTube
channel, where no pre-registration was required. A total of 12
members of the public viewed the Public Open House on
YouTube.
The purpose of Public Open House #2 was to present Phase
2 of the Study, being the Draft Action Plan, to the public. The
Public Open House offered an opportunity for feedback and
input to be received by the project team. The Public Open
House also enabled pre-registered participants to interact
directly with the City’s project team by asking questions and
providing feedback.
The Public Open House was facilitated by WSP with members
of the City’s project team in attendance. The City’s project
manager, Margaret Kish, delivered a PowerPoint presentation
which included a review of the Study’s progress and a
presentation of the Draft Action Plan. Following the
presentation, pre-registered participants delivered delegations
to the City, with follow-up questions being directed to the City’s
project team. Delegates at the meeting included the following
individuals:
• Royce Baker; and
• Jennifer Jaruczek, representing BILD.
Also, in attendance were Michael Blake and Erin Valant from
the Region of Durham.
The Public Open House included considerable discussion
between registered participants and the project team, through
which a range of topics, issues and opportunities were
explored. This discussion included a follow-up on items
proposed by the City through the Draft Action Plan. The Public
Open House concluded with an open discussion followed by a
review of the Study’s next steps delivered by the City’s project
manager. Additional comments were received until May 6,
2021.
PICKERING ACCESSIBILITY ADVISORY COMMITTEE
DELEGATION #2
On May 19, 2021, Margaret Kish attended an electronic
meeting of the Pickering Accessibility Advisory Committee
(AAC) as a delegate. The AAC was provided with an update
on the status of the Study, including a review of the work plan
to confirm next steps. Information regarding housing gaps
were identified, while tools identified in the Draft Action Plan
were reviewed. These tools included planning policy, financial
incentives, partnership, education, advocacy and other
actions.
8
The AAC was then provided additional information on several
follow-up items, as discussed through a question and answer
period:
• Request to provide the AAC with an update regarding
components of the Draft Housing Strategy and Action
Plan concerning affordability and accessibility prior to
launching the Strategy;
• Increasing the City’s standards for accessibility and
affordability;
• Actions to encourage developers to pursue
accessibility and affordability; and
• The complexity of housing issues and concerns
regarding the various interested and affected parties
involved.
WHAT WE HEARD
Feedback received during Phase 1 and 2 of the Study ranged
in topic and focus. Several key themes emerged that may
inform the Recommended Housing Strategy and Action Plan ,
which will be developed in Phase 3 of the Study. The following
subsections provide a summary of these key themes.
PRELIMINARY KEY THEMES
The following key themes were identified following a review of
the feedback received through Phase 1 and 2 engagement
activities:
• Encourage a Range of Housing Options:
Participants in Phases 1 and 2 of the Study
communicated that a range of housing options are
required to advance the City’s affordable housing
objectives. Housing options in this context refer to
tenure (e.g., rental, ownership, rent-to-own, lease-to-
own, co-operative housing, “rooming or lodging house”
etc.), housing types (e.g., detached, semi-detached,
accessory dwelling units (i.e. basement apartments),
mid-rise apartment, high-rise apartment, bungalow and
“modular” housing), as well as housing typologies, such
as housing that is better suited towards the needs of
seniors (e.g., bungalows). The role of basement
apartments and accessory dwelling units were also
highlighted as a potential opportunity to provide
additional affordable housing within the City.
• Implement an Updated Policy Framework: Many
participants noted a desire for the City to develop and
implement an updated policy framework in regard to
affordable housing. First, there was recognition that the
Region is currently undertaking a review of its official
9
plan, and that a modified policy framework, providing
direction to local municipalities regarding affordable
housing matters, is being considered through that
process. Second, it was communicated that the City
may need to consider a definition of “affordable” that is
responsive to the local context and takes into
consideration the City’s specific housing market and
affordable housing needs. Lastly, input was received
regarding policies that would provide direction to the
provision and protection of affordable housing within
the City. Policy considerations in this regard included,
for example, enabling policies to offer financial
incentives, protection from the conversion of purpose-
built rental units, and a framework for inclusionary
zoning that is predicated on close consultation and
collaboration with key stakeholders, including the
development industry.
• Provide Financial and Other Incentives:
Implementing incentives to encourage and facilitate the
development of affordable housing emerged as a key
theme through Phases 1 and 2. Where financial
incentives may be considered, it was noted that the City
should explore opportunities to fund these incentives
through support from all levels of government.
Participants also noted the important role that financial
incentives can play in making affordable housing
development feasible, especially in the form of grants,
loans and/or deferrals of certain charges. The intent of
financial incentives should focus on mitigating costs
and fees associated with development of affordable
housing. For example, this may include the deferral of
development charges, or grants that are offered to
offset certain fees for applications made under the
Planning Act, or fees required for building permits,
specifically as it relates to proposals that have an
affordable housing component.
Non-financial incentives to encourage and facilitate the
development of affordable housing could include relief from
certain tools administered by the City under the Planning Act,
such as minimum parking requirements regulated by a zoning
by-law. The planning and development process was also
highlighted as a potential opportunity to incentivize affordable
housing, whereby an expedited process may be facilitated by
the City where affordable housing is proposed.
Lastly, participants expressed support for utilizing Community
Benefit Charges to fund certain incentives, where feasible or
permitted under the Provincial regulations. Support for other
tools and instruments, such as a Community Improvement
Plan (under Section 28 of the Planning Act), inclusionary
10
zoning, and a more permissive regulatory framework for
secondary suites, were also observed to be desirable options
to advance the City’s affordable housing objectives.
• Foster Collaboration and Partnerships: Participants
noted that collaboration and partnership is a critical
consideration in developing and implementing a
Recommended Housing Strategy and Action Plan.
Input received through Phases 1 and 2 encouraged the
City to work collaboratively with a range of
stakeholders, including local organizations, agencies,
consultants and the development industry, when
exploring and evaluating options to advance the City’s
affordable housing objectives. This may include, for
example, consultation and collaboration when
preparing implementing policies, developing incentive
programs, or preparing City-led affordable housing
initiatives. Understanding who the key stakeholders are
and their role in affordable housing was also observed
to be a key consideration for the City with regards to
implementing the Recommended Housing Strategy
and Action Plan. Importantly, participants were
appreciative of the opportunity to be consulted and
heard as the City develops the Recommended Housing
Strategy and Action Plan.
• Public Consultation and Education: Many
participants noted that community opposition is often a
barrier to the development of affordable housing. This
opposition was largely articulated as a stigma towards
individuals who may rely on various forms of affordable
housing from government assistance or other publicly
funded support systems. Here, participants highlighted
the critical role the City has in offering enhanced
communication, education and awareness about the
value of integrating affordable housing within the
community and the broader benefits this offers through
a socioeconomic lens. Discussions in this context
included a potential need to implement a robust public
education and awareness campaign as the City seeks
to implement the Recommended Housing Strategy and
Action Plan over its intended horizon.
NEXT STEPS
Following the presentation of an update on the Study and the
Draft Action Plan to the Planning and Development Committee
in June 2021, the City will circulate the Draft Housing Strategy
and Action Plan to internal departments, agencies and
interested stakeholders for review and comment. Phase 3 will
consider feedback from the circulation and culminate in the
Recommended Housing Strategy and Action Plan, to be
11
presented to Council for consideration for adoption. This is
anticipated to occur in late-2021.
pickering.ca
Housing Strategy Study
Housing Strategy & Action Plan
Appendix 4
April 29, 2021 Electronic Open House 2:
Summary of Comments/Questions
Housing Strategy Study
April 29, 2021 Electronic Public Open House 2
Summary of Comments/Questions
Item
Number Comments/Questions
1. The cost of insuring shared housing (sometimes referred to as “rooming houses”),
may impact a home owner. For seniors who may have the space and may
welcome the company, the extra costs of these issues could outweigh their desire
to assist someone with their housing situation.
2. The City’s 55+ Advisory Committee, has been considering the option of
accommodating younger single individuals co-habitating with a senior, thus
providing the singleton with affordable housing options in return for some
assistance to the senior, such as lawn mowing, snow removal etc.
3. The City should ensure that a Shared Living form of housing is encouraged. Sharing
accommodations is the most common way for minimum waged workers to obtain
affordable housing. Some municipalities regulate shared living accommodation
(“rooming houses”). There needs to be municipal, regional, and provincial
initiatives to overcome structural barriers to shared living.
4. How will Pickering resolve issues of multiple cars parked in driveways and on the
street that may result from affordable housing such as rental apartments and
rooming houses? Does the Planning Committee have a method to deal with a
potential lack of upkeep of the area surrounding these units. In Toronto we hear
about used drug needles left outside and liquor bottles being left about as well as
transients loitering. Has the City developed a plan to deal with these negative
issues in the planning process? How will the Planning Department ensure the
overall look of Pickering will not be diminished?
5. If low cost housing is a priority, why not include studio apartments or condos that
will be more affordable?
6. As a senior I was happy to hear consideration concerning the accessibility of
housing. I would like to see more bungalow condos similar to the ones beside the
Pickering City Hall. The bungalows there are always in very high demand.
Coupled with that, smaller detached bungalows should also be a considered.
7. Pickering seems to focus its energy on creating more high density housing such
as condos, apartments and town houses. Why is there no focus on single family
homes for young families or bungalows with a garage for seniors. I feel there is too
much emphasis on high density and not enough on the younger families and older
seniors.
Housing Strategy Study
April 29, 2021 Electronic Public Open House 2
Summary of Comments/Questions
Item
Number Comments/Questions
8. Pickering Council entertained the request to build a high condo building at the
waterfront at the bottom of Liverpool Road. Why is Pickering not focusing its
efforts to create as much parkland as possible along the waterfront for all
Pickering residents to enjoy? The waterfront trail should incorporate as much
greenspace as possible for residents. Ajax was very forward thinking in doing just
that. As a result there are miles of waterfront trail to walk and enjoy.
9. Is Pickering interested in designing a seniors shared living house design? Have
you studied the Golden Girls of Port Perry?
10. BILD spoke about the importance of partnerships in addressing the declining
affordability in housing in the Greater Toronto Area, including the organization’s
support for funding and grants from all levels of government. In particular, they
expressed that they are encouraged by the wording in the Draft Action Plan and
an approach which includes a suite of incentives that seeks to provide affordable
housing units. In addition, BILD expressed an interest in ensuring that any future
Inclusionary Zoning policies or requirements are applied in such a way to not
unintentionally undermine future housing stock or choice, as well as the City’s
overall growth objectives. BILD suggested that a working group be established
between the City and BILD.
11. BILD stated that it’s fairly common when the industry is proposing new
development that they are faced with community opposition and that community
education is necessary to combat the stigma of the word “affordable”. BILD
expressed that they believe that the success of implementing affordable housing
begins early on with Council, and requires their support and endorsement to be
the champions for these policy directions, and ends with residents who need to
understand the social implications of opposing these types of initiatives.
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